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Bus Rapid Transit Projects in Indian Cities: A Status Report

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DOI: 10.2148/benv.36.3.353

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BUS RAPID TRANSIT PROJECTS IN INDIAN CITIES: A STATUS REPORT

Bus Rapid Transit Projects


in Indian Cities: A Status Report
GEETAM TIWARI and DEEPTY JAIN

The level of public transport service in Indian cities is low in terms of reliability,
comfort, safety and security. Together with increasing income levels this is leading
to a shift towards private car use. To halt this trend requires the provision of safe,
efficient public transport and secure support systems for pedestrians and non-
motorized vehicles. This has led to the planning of Bus Rapid Transit Systems
(BRTs) in several Indian cites in the past ten years. This paper presents the existing
status of BRTs projects in ten Indian cities, which are at the different stages of
implementation. For the study, data for all the cities have been collected from
different sources such as local authority websites, organizations involved in the
projects, published reports and studies, and the media.

Why BRT in Indian Cities? The infrastructure is not designed for buses.
Generally, pedestrian infrastructure is not
Indian cities predominantly have a mixed maintained. Public transport users are mostly
land use system with substantial informal
settlements. This has resulted in short
trip lengths (figure 1). Delhi and Mumbai
have populations of more than 10 million,
Hyderabad’s population is about 5 million
and Pune about 3 million. Figure 1 shows
that in big cities like Delhi and Mumbai 80
per cent of trips are less than 10 km in length.
The shorter trip lengths have supported the
use of non-motorized vehicles (NMV) as well Figure 1. Trip lengths in selected cities in India.
as walking trips in cities. As such, NMV has
a share of about 30 per cent in cities of more
than 1 million, which increases to nearly 60
per cent in smaller cities (figure 2). The share
of public transport is also more than 40 per
cent in cities with populations of more than
5 million (mostly organized bus systems)
and about 10–20 per cent in cities with
populations of 1–2 million (primarily served
by informal route taxis).
However, the level of service provided by
the public transport system is low in terms Figure 2. Travel mode share (percentage) vs.
of reliability, comfort, safety and security. different city size (population in millions).

BUILT ENVIRONMENT VOL 36 NO 3 365


BUS RAPID TRANSIT: A PUBLIC TRANSPORT RENAISSANCE

captive users, i.e. they use public transport planning of Bus Rapid Transit Systems (BRTs)
because personal vehicles are not available in several Indian cites in the past ten years.
or the cost of using personal vehicles is too This paper presents the existing status of
high. With the present low quality of public BRTs projects in ten Indian cities, which are
transport services and increasing income at the different stages of implementation. For
levels, there is a shift to private motorized the study, data for all the cities have been
vehicles. The current ‘sustainable modal collected from different sources such as local
share’ in favour of walking, non-motorized authority websites, organizations involved in
vehicles and public transport can be lost very the projects, published reports and studies,
quickly in ‘the business as usual’ scenario, and the media.
leading to higher dependence on fossil fuels,
higher emissions of green house gases, and
History of BRT Systems in Indian Cities
increased congestion. To retain the modal
shares and switch from captive users to The proposal for BRT was first mooted in
choice users of public transport in Indian Delhi in 1996. This recommendation was a
cities, requires the provision of efficient and part of a report ‘Delhi on the Move’ sub-
utility-based public transport systems along mitted to the Central Pollution Control
with safe and secure support systems for Board (CPCB) of India. The main motivation
non-motorized vehicles. behind this proposal was to address the
A wide range of public transport options problem of growing road traffic injuries and
is available: rail-based systems catering for fatalities and pollution in the city (Mohan
more than 30,000 pphpd (passenger peak et al., 1997). The report was examined by
hour per direction) and high-capacity bus the Delhi Department of Transport, and
systems (HCBS) that have maximum capacity policies were initiated to take it forward.
of 25,000 pphpd. The optimal trip length for Then in 2001, a workshop was organized
a rail-based system is greater than 14 km by Delhi Transport Corporation (DTC) and
and that constitutes only 7–8 per cent of the Infrastructure Development Finance Com-
total trips in megacities (Advani and Tiwari, pany (IDFC) to enable a detailed discussion
2006a). Existing experiences from cities like of the concept by international experts and
Mumbai and Kolkata suggest that rail-based stakeholders. Following this, the government
systems are costly for local authorities and set up a committee on sustainable transport
require heavy subsidies to keep up the chaired by the Chief Secretary of Delhi. On
ridership. Moreover, the existing systems are the recommendation of this committee, RITES
carrying only a small proportion of public (a Government of India enterprise) was
transport users and attract only a small awarded the contract to prepare a feasibility
share of private transport users (Advani report and plans for implementing BRT
and Tiwari, 2006b; Mohan, 2003). Given the on five selected corridors in Delhi in 2003.
socio-economic profile and development Detailed designs were prepared based on
pattern of Indian cities, bus systems are a 2003–2004 traffic surveys at all thirty-thee
viable option and if planned properly can junctions along the corridor. The detailed
provide high capacity at a fraction of the topographical survey included exact locations
cost of a rail-based system. Moreover, bus of all services and trees along the entire
systems are flexible and hence can easily length of the carriageway where the BRT
meet the changing development pattern and was to be introduced.
travel demand of a city. At present, buses The low level of service provided by
are the dominant mode of public transport the existing transport systems have led
system in Indian cities and there is a need to to problems in many other Indian cities
improve existing services. This has led to the – increasing numbers of private vehicles,

366 BUILT ENVIRONMENT VOL 36 NO 3


BUS RAPID TRANSIT PROJECTS IN INDIAN CITIES: A STATUS REPORT

traffic congestion and degraded air quality. with the operation of BRT in December
Concerned with the issues, National Urban 2006, followed by Delhi in April 2008 and
Transport Policy (NUTP) was adopted by Ahmedabad in July 2009.
Ministry of Urban Development (MoUD)
in 2006. This focused on the development
Conceptualization of BRT Systems in
of infrastructure to encourage use of non-
Indian Cities
motorized modes (walking and cycling) and
public transport systems (Ministry of Urban The success of a BRT project depends on
Development, 2006). This was followed by three factors: institutional structure; concepts
Jawaharlal Nehru National Urban Renewal related to operation of buses and integration
Mission (JnNURM) funding which from of the system with other modes of transport
2007 provided support for the projects that to provide easy and safe interchange; and
complied with the NUTP. As a result, nine reduction of conflict between different modes.
Indian cities excluding Delhi have started This section is thus divided into three parts
developing BRT systems and a total of fifty- dealing with each of these factors.
three cities have started to improve their
public transport systems by purchasing new
Institutional Structure (Responsible Authorities)
low-floor buses and improving operation of
existing bus services. Planning of all the BRT systems was initiated
Of the ten cities originally selected for by local municipal governments as soon as
implementation of BRT, where parts of the assistance under the JnNURM scheme became
BRT system are operational in three cities and available. Except for Delhi BRT, all the sys-
systems in six cities are under construction tems are funded by JnNURM with 50 per
(table 1). Pune was the first city to experiment cent support from the centre, 20 per cent

Table 1. Status of BRT projects in Indian cities.


City Stage of Construction Operation
implementation started started Remarks

Delhi 5.6 km operational Oct 2006 April 2008


Ahmedabad 25 km operational 2007 July 2009
Pune 17 km operational 2003 Dec 2006
Surat 10.2 km under Not yet started
construction
Jaipur Package 1B Sept 2007 Not yet started
constructed
Indore 11.5 km under October 2007 Not yet started Encroachments and court stays on
construction land parcels and non-availability of
traffic diversion links for the pilot
corridor
Bhopal Under construction: 2008 Not yet started Delay in finalization of the
only 22 per cent in Implementing Agency
progress Delay in transfer of Road from
NHAI & MoRTH
Railways permission is still awaited
for ROB
Vishakhapatnam Under construction 2008 Not yet started
Vijayawada 14.5 km ready for June 2008 Not yet started
operation
Rajkot Under construction 2008 Not yet started

BUILT ENVIRONMENT VOL 36 NO 3 367


BUS RAPID TRANSIT: A PUBLIC TRANSPORT RENAISSANCE

Table 2. Authorities responsible for BRT projects in the ten cities.


City Executing Authority Financial support Operating authority
Delhi GNCTD GNCTD
Ahmedabad Municipal Corp. JnNURM SPV: Janmarg
Pune Municipal Corp. JnNURM SPV: PMPML
Surat Municipal Corp. JnNURM SPV
Jaipur Development Authority JnNURM SPV: JCTSL
Indore Development Authority JnNURM SPV: ICTSL
Bhopal Municipal Corp. JnNURM SPV
Vishakhapatnam Municipal Corp. JnNURM SPV
Vijayawada Municipal Corp. JnNURM SPV
Rajkot Municipal Corp. JnNURM SPV

from the state government and 30 per cent identified based on the available rights-of-
from the local authorities (table 2). In Delhi, way (ROWs), traffic demand and existing bus
the BRT project was initiated by the Delhi routes in the city. The criteria for selection of
government transport department, which the first pilot corridor are based on the ease
formed a joint venture company – Delhi of implementation in terms of availability of
Integrated Multimodal Company (DIMTS) ROW except for Delhi, Pune and Bhopal. In
– with IDFC to plan a multi-modal transport Delhi, apart from the availability of ROW,
system. Special purpose vehicles have been demand on the corridor is very high and in
planned in Ahmedabad, Indore, Pune and Bhopal the pilot corridor passes through the
Jaipur also. congested and dense areas of the city.
Of the ten cities, BRT in nine is being
developed under JnNURM. Except for Pune
Operating Concepts of BRT
and Ahmedabad, MoUD has approved only
phase-I or pilot corridors for implementation Type of BRT System. There are two types
(table 3). The financial plan for the remaining of BRT system: closed systems and open
corridors has not yet finalized in these cities systems. In a closed system, buses run on
and this could hinder the full implementation a dedicated corridor without being affected
of these systems and hence their success. by other traffic (figure 4). The system re-
In all the cities BRT corridors have been quires a planned feeder service for the areas

Table 3. BRT network plan in the ten cities.


City Planned length of Approved length of the Criteria for selection
the corridor (km) corridor by MoUD (km) of first corridor
Delhi 426.00 NA High density
Ahmedabad 88.80 88.80 ROW
Pune 117.00 117.00 ROW
Surat 125.00 30.00
Jaipur 138.00 42.00
Indore 106.00 11.50
Bhopal 44.00 (phase-1) 21.70 High density
Vishakhapatnam 105.70 42.00 Travel demand, ROW
Vijayawada 42.45 15.50
Rajkot 63.00 29.00

368 BUILT ENVIRONMENT VOL 36 NO 3


BUS RAPID TRANSIT PROJECTS IN INDIAN CITIES: A STATUS REPORT

Figure 3. Closed BRT system in Ahmedabad. Figure 4. Open BRT system in Delhi.

Table 4. Type of BRT system in the ten cities.


Cities
Type of system DEL ABD PNE SRT JPR IDR BHP VSK VJD RJK
Open X X X X
Closed X X X X
Hybrid X X
X Planned
Note: DEL: Delhi; ABD: Ahmedabad; PNE: Pune; SRT: Surat; JPR: Jaipur; IDR: Indore; BHP: Bhopal; VIZ:
Vishakhapatnam; VJD: Vijayawada; RJK: Rajkot.

where passengers are fewer and hence where travel pattern in city and provide a more
it is not financially feasible to provide trunk frequent service to the areas served by
services. Closed BRT systems have been exclusive BRT routes. In Bhopal, the system is
adopted in Ahmedabad, Surat, Vishakhapat- primarily planned as a closed system except
nam and Rajkot. In an open system, existing that the buses will run in mixed traffic lanes
bus services are upgraded by providing in the areas where right-of-way (ROW) is not
dedicated lanes for the movement of buses available. Here the existing bus fleet will not
in congested areas. Open systems are thus be allowed to travel on the BRT corridor and
flexible and easily adapt to existing bus will only be used as feeder service.
routes and movement patterns. Buses can
leave and enter the corridor at intersections Bus Lane Details. The width of bus lanes is
thereby reducing the number of interchanges either 3.3 m or 3.5 m with 3.5 and 3.75 m
required in the case of a closed system (figure at bus stops. Different means have been
5). In addition to closed and open systems, used to segregate the bus lanes from main
there can be hybrid systems. As shown in carriageway (table 5). In Delhi, Indore and
table 4, BRT in Jaipur and Bhopal is a hybrid Surat kerbs are used, while railings are used
system. In the case of Jaipur, an exclusive in the other cities. In Delhi, fences have
BRT service has been planned. Along with been used only at intersections to identify
this exclusive service, destination oriented exclusive bus lanes from mixed traffic
services have also been planned. Here the situations. Safe movement of buses in bus
BRT service is extended to the areas where lanes can be assured by the appropriate use
dedicated corridors are not present. The of segregation methods. Rumble strips are
system can thus operate within the existing used in Delhi, Pune and Rajkot, while lane

BUILT ENVIRONMENT VOL 36 NO 3 369


BUS RAPID TRANSIT: A PUBLIC TRANSPORT RENAISSANCE

Figure 5. Island platform in Ahmedabad. Figure 6. Closed platform in Jaipur.

Table 5. Bus lane detail in the ten cities.


Cities
DEL ABD PNE SRT JPR IDR BHP VSK VJD RJK
Width of BRT lane is X X X X X
3.3 m
Width of BRT lane is X X X X X
3.5 m
Tools to segregate Only Kerb X X X
bus lane from Railings X X X X X X
carriageway

Tools to segregate Rumble strip X X X


two bus lanes Lane marking X X X
Divider X X
X Planned
Note: DEL: Delhi; ABD: Ahmedabad; PNE: Pune; SRT: Surat; JPR: Jaipur; IDR: Indore; BHP: Bhopal; VIZ:
Vishakhapatnam; VJD: Vijayawada; RJK: Rajkot.

markings are used in Ahmedabad, Jaipur and is more and points of significant boarding/
Bhopal. Wide medians are planned to be used alighting occur in between intersections,
in Surat and Vijayawada. provision has been made for mid-block bus
stops also.
Bus Stops. Two types of bus stop designs Fare Collection. The fare collection mechanism
are possible in case of median bus lanes: and fare policy affect customer satisfaction,
staggered or island platform (figures 5 and convenience and level of service. Different
6). Of the ten cities Ahmedabad and Surat types of fare collection mechanism exist
have planned for island platforms while in ranging from traditional on-board systems
Jaipur both types of bus stops are proposed. to electronically handled off-board systems.
The average distance between bus stops in all In Delhi and Pune the existing system of
the cities is 500 m except in Ahmedabad and on-board fare collection is to be continued
Vijayawada (table 6). Staggered platforms whereas in Ahmedabad, Surat, Indore and
are planned at the approach arms of the Rajkot off-board fare collection is planned.
intersections thus using red phase of traffic In the other four cities existing on-board fare
signals for boarding and alighting. This collection systems are to be used together
enhances the level of service provided by with provision for off-board systems.
the system. Wherever intersection spacing

370 BUILT ENVIRONMENT VOL 36 NO 3


BUS RAPID TRANSIT PROJECTS IN INDIAN CITIES: A STATUS REPORT

Table 6. Bus stop details in the ten cities.


Cities
DEL ABD PNE SRT JPR IDR BHP VSK VJD RJK
Staggered type bus stops X X X X X X
Island platforms X X X X
Bus stop before junction X X X X X X X
Bus stop far-side of junction X X X X
Overtaking lane at bus stop X X X X
Average distance between 500 800 500 600 500 500 600 700 750
bus stops (m)
X Planned
Note: DEL: Delhi; ABD: Ahmedabad; PNE: Pune; SRT: Surat; JPR: Jaipur; IDR: Indore; BHP: Bhopal; VIZ:
Vishakhapatnam; VJD: Vijayawada; RJK: Rajkot.

Integration of BRT with Other Modes of In Delhi, to reduce conflicts between


Transport pedestrians and motorized vehicles at access
point to properties, raised ramps have been
Walking. All bus users are primarily pede- provided.
strians either during access or egress or for
both the trips. The effectiveness of the system Cycles and Cycle Rickshaws. Cycle tracks have
thus depends on the safety of pedestrians on been planned based on the availability of
road and the comfort provided for accessing ROW. In Delhi, Indore and Rajkot continuous
the bus service. cycle tracks and cycle lanes are planned on
Except in Ahmedabad, continuous foot- either side along the corridor. The width
paths have been planned for the safe move- of these tracks range from 1.8 m to 2.7 m.
ment of pedestrians along the corridor, which Signalized crossing have been created by
is separate from the NMV lanes. In Bhopal, providing cycle boxes at intersections to
where the right of way (ROW) is less than allow cycles to wait for the green phase
20 m, a combined 3 m wide space has been of the signal. Bicycle parking has been
provided for both pedestrians and cyclists. planned along the corridor near bus stops
Zebra crossings with pedestrian activated and junctions in Delhi, Pune, Jaipur and
traffic signals have been provided in all the Indore. On Delhi-BRT corridor, parking for
cities both at junctions and mid-blocks where cycles has been provided along NMV lane
bus stops have been planned. In Delhi, raised which is not more than 100 m away from the
zebra crossings have been provided on free intersections and there is provision for rent
left turns and minor access roads joining the and ride facilities at some stations.
main corridor. At mid-block bus stops where
demand is high, grade separated facilities Intermediate Para-Transit (Three-Wheelers): Free
have been planned in Ahmedabad and parking facilities for auto-rickshaws have
Pune. In Surat, the main carriage way has been planned along the corridor near bus
been elevated to provide at grade crossing stops and junctions in Delhi, Ahmedabad,
for pedestrians. Dedicated bus lanes in all the Pune, Jaipur, Indore, Vijayawada and Rajkot.
cities are planned on the central lane thereby This increases the all over catchment area of
reducing crossing distance for pedestrians the BRT system.
using bus on the corridor and conflicts
between buses and slow moving vehicles Motorized Wheelers. Paid on-street parking has
(non-motorized modes like pedestrians and been planned in Ahmedabad, Jaipur, Indore
cyclists). and Rajkot. In Vijayawada paid off-street has

BUILT ENVIRONMENT VOL 36 NO 3 371


BUS RAPID TRANSIT: A PUBLIC TRANSPORT RENAISSANCE

been planned for 50–200 equivalent car spaces a platoon of ten buses every 2 minutes if the
for every 1 km of the BRT corridor. In Delhi, signal cycle is kept at 2 minutes. At present
apart from off-street parking, stopping bays the signal cycle is sometimes more than 3
for both cars and heavy vehicles have been minutes.
planned along the main carriageway.
Demand Assessment
Evaluating BRT Systems of India
The demand for which BRTS has been plan-
This section evaluates the different BRT ned in the ten cities varies from approximately
systems proposed and operational in Indian 2,600 passengers per hour per direction
cities based on the efficiency, system require- (pphpd) being served by Ahmedabad BRT
ments and infrastructure of each. over a length of 25 km to the maximum of
13,500 pphpd being served by the Delhi pilot
corridor stretch of 5.6 km. The passenger
Bus Operation and Efficiency
demand on selected BRT corridors in many
As discussed earlier, open BRT systems cities is still low as in Bhopal where the
can be easily integrated with the existing maximum existing demand on the selected
intra-city bus systems. Table 7 presents the corridor is 3,800 pphpd and is projected to be
average speed and frequency planned for 11,400 by 2021 (table 8). In Jaipur the existing
BRT. Approximately 9 per cent of the total demand ranges from 500 to 1,700 pphpd. In
routes in Delhi pass through the BRT pilot Indore the demand in 2009 was 1000–6000
corridor (5.8 km long from Ambedkar Nagar pphpd on the identified corridors which is
to Moolchand Flyover), with buses running projected to rise to 2500–10,000 pphpd by
at peak hours at a frequency of 120 buses 2012 and 60,00–25,000 pphpd by 2021. Except
per direction and an average speed of 18 for Delhi system, planned ridership is five or
km/h. In contrast, in the case of Ahmedabad six times higher than the planned theoretical
closed system, frequency is 30 buses per capacity of the system.
hour per direction with an average speed
of 24 to 25 km/h. The Delhi system has two
Infrastructure Cost
parallel platforms at the bus stops on the
near side of the junction. Each platform can The unit cost of BRT infrastructure in Indian
accommodate four or five buses boarding and cities varies from Rs 85 to 155 million per
alighting simultaneously. Buses can move in kilometre with least being in Rajkot and

Table 7. Efficiency of BRT systems in the ten cities.


City Peak hour average speed Frequency Comments
(km/h) (minutes)
Delhi 18 0.5 Achieved
Ahmedabad 24–25 2.5 Achieved
Pune 16–18 2 Achieved
Surat 2–5 Planned
Jaipur 25 2–4 Planned
Indore 20 1.5 Planned
Bhopal 25 2–3 Planned
Vishakhapatnam 1–1.5 Planned
Vijayawada 22–25 Planned
Rajkot 22–25 1.5 Planned

372 BUILT ENVIRONMENT VOL 36 NO 3


BUS RAPID TRANSIT PROJECTS IN INDIAN CITIES: A STATUS REPORT

Table 8. Demand assessment on BRT corridor in the ten cities.


Stage of City Existing Ridership Planned Ridership
implementation (pphpd) (pphpd)
Operational Delhi 13,500 20,000–24,000
Ahmedabad 2,400–2,600 15,000–20,000
Pune 3,600 10,000–15,000
Under construction Surat 20,000
Jaipur 500–1,700
Indore 1,000–6,000 10,000–20,000
Bhopal 1,800–3,800 11,400
Vishakhapatnam 3,950–5,970 5,750–9,100
Vijayawada
Rajkot 8,000

maximum in Delhi (table 9). The type of proposed in small cities also that requires
infrastructure provided, materials to be interchanges to be able to use the system.
used, location of the corridor, relocation of With trip lengths as small as 3 km and an
activities and utilities are the major factors access and egress distance of 500 m, a closed
in determining the cost of the infrastructure. system is not a viable option.
For example in Ahmedabad and Surat grade
separated facilities have also been planned on
Demand Assessment
the BRT corridor.
BRT projects can serve a capacity of 20,000 to
25,000 pphpd, depending on the geometry,
Key Findings
bus stop design and operational plans. Of the
ten cities, the appropriate use of the capacity
Requirements for BRT
of system is recognized only in Delhi, where
Average trip length in the metro and medium the existing demand is 13,500 and the system
sized cities is more than 5 km. However, in design offers for the maximum of 24,000
small cities it is less, except in Indore. Bus pphpd. Whereas, in cities like Bhopal or Surat
systems are preferable for trip lengths of demand is as low as 1,700 pphpd and the
more than 3–5 km. Closed systems have been system is designed to serve only 3,000–6,000

Table 9. Cost of BRT infrastructure in the ten cities.


City Route length Approved cost Unit cost Ranking
approved (km) (Rs x 107) (Rs x 107 per km)
Delhi 426 14.89 2
Ahmedabad 88.8 984.15 11.08 4
Pune 121 1789.16 14.79 3
Surat 29.9 469.02 15.69 1
Jaipur 45 479.54 10.64 6
Indore 22.5 98.45 4.38 8
Bhopal 21.7 237.76 10.96 5
Vishakapatnam 47.5 452.93 9.53 7
Vijayawada 39.45 152.64 3.87 9
Rajkot 29 110.00 3.79 10

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BUS RAPID TRANSIT: A PUBLIC TRANSPORT RENAISSANCE

pphpd. Such a small demand can be better very cautiously and slowly in implementing
served by improving operations of existing BRT projects. The main concern seems to be
bus system in the city rather than investing to avoid the possible adverse impact on car
approximately Rs 1–1.5 billion per km for traffic. Several cities are preparing plans for
development of BRT corridor. a metro system, which is ten to fifteen times
costlier than the BRT, and are asking central
government for assistance. These projects
Integration with Other Modes of Transport
have strong support from the media as well
Integration of BRT with other existing as politicians and bureaucrats. However,
modes of transport is essential in order to BRT projects, which require less capital
provide comfortable access and egress to and operating costs and have a potential
and from the system. This can be achieved to transform the city environment and
by providing safe and secure infrastructure benefit large numbers of people, have had a
for NMV and parking for cycles, auto- lukewarm response from the authorities and
rickshaws and private motorized vehicles. the media.
This has been obtained in Delhi, Pune and
Jaipur. In contrast, in Ahmedabad planned
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374 BUILT ENVIRONMENT VOL 36 NO 3

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