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Brexit in European Integration Theory: Liberal Intergovernmentalism, Neofunctionalism and Constructivism
Brexit in European Integration Theory: Liberal Intergovernmentalism, Neofunctionalism and Constructivism
Brexit in European
Integration Theory:
Liberal
Intergovernmentalism,
Neofunctionalism and
Constructivism
Bachelor's Thesis
MARK SZABO
Brno 2019/2020
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BREXIT IN EUROPEAN INTEGRATION THEORY: LIBERAL
INTERGOVERNMENTALISM, NEOFUNCTIONALISM AND CONSTRUCTIVISM
Bibliographic Record
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BREXIT IN EUROPEAN INTEGRATION THEORY: LIBERAL
INTERGOVERNMENTALISM, NEOFUNCTIONALISM AND CONSTRUCTIVISM
Abstract
Brexit has been widely perceived as one of the most important crises
currently facing the European integration process and one of the key
topics on the European Union’s (EU) agenda since the British voters
voted to leave the bloc in an in/out referendum on 23 June 2016. It is for
the first time ever that a Member State withdraws from the EU. Against
this background, the aim of this thesis is to provide at least a partial
interpretation of this unprecedented phenomenon. As such, the thesis
asks how and to what extent various theories of European integration
can explain Brexit as a contemporary crisis of European integration.
More specifically, it looks at Brexit through the perspective of three
theoretical approaches: liberal intergovernmentalism, neofunctionalism
and constructivism.
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BREXIT IN EUROPEAN INTEGRATION THEORY: LIBERAL
INTERGOVERNMENTALISM, NEOFUNCTIONALISM AND CONSTRUCTIVISM
Statutory Declaration
.......................................
Mark Szabo
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TABLE OF CONTENTS 3
Table of Contents
1 Introduction 7
1.1 UK as an awkward partner ....................................................................... 7
1.2 European integration theories ............................................................. 10
1.3 Methodology, goals, and research questions .................................. 11
1.4 Literature review ....................................................................................... 13
3 Liberal Intergovernmentalism 19
3.1 About Liberal Intergovernmentalism ................................................ 19
3.2 Brexit and Liberal Intergovernmentalism ....................................... 19
4 Neofunctionalism 23
4.1 About neofunctionalism .......................................................................... 23
4.2 Brexit and neofunctionalism ................................................................. 23
5 Constructivism 28
5.1 About constructivism ............................................................................... 28
5.2 Brexit and constructivism ...................................................................... 29
6 Conclusion 32
7 Bibliography 35
3
LIST OF TERMS AND ACRONYMS 5
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1 Introduction
From the UK’s perspective, opening up new potential places for trade and
maybe to benefit from the post-war economic boom, would help the
country greatly, which is why it wanted to join the EEC (as the UK was
labeled as the ‘Sick man of Europe’ (Buttonwood 2017)). Despite this,
shortly after joining in 1973, a national referendum was issued in 1975
on the continued membership in the EEC, which was approved by 67.2%
of the people, who voted (Seymour-Ure 1978, 602). The referendum was
held due to the UK’s disagreements with its budgetary contribution and
the Common Agricultural Policy (Monbiot 2018), which saw the UK pay
much more into the budget than it would get back in return, not
mentioning the problems with the Commonwealth, from which the UK
benefited enormously, due to the amount of food it imported from those
nations. (Todd 2016, 39-43) However, the actual main reason was to
unite the Labour party in the question of the EEC and prevent it from
splitting in order to win the general elections in 1974. Even though the
referendum saw the UK remain in Europe, the UK’s political discourse
saw a rise in Euroscepticism, which lead to a large animosity between
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The reason why the relationship between the UK and the EU can be la-
belled as an awkward one, is because throughout the years, the UK has
either been a constructive or a rather unconstructive partner. It began
with the 1975 referendum just a year after joining. The relationship had
its ups and downs, its better or worse, happy, or awkward moments. For
the most part, the UK was at odds with major initiatives within the Euro-
pean Community and was disliked for having a sort of independent point
of view, going as far back as the beginning of the European integration
process in the 50s. (George 1998, Chapter 1) Stephen George outlined
five main points of contention (late accession to the EEC, domestic polit-
ical constraints, parliamentary sovereignty and elitism, a preference for
a ‘special relationship’ with the US, and a fifth theoretical point under-
scoring the UK’s negative attitude towards continental Europe). (George
1998, 275) However, even If awkward at points, the relationship also had
its more positive moments both for the UK and the EU, challenging the
perception of the UK as an awkward partner. Probably the best contribu-
tion to showcase would be the UKs help with the creation of the Single
Market and the advancement of economic reform across the EU (espe-
cially with London being THE economic capital of the EU). Other exam-
ples might be the UKs contribution to the EU’s budget, advocacy for the
2004 Eastern Enlargement, EU animal welfare laws and more, best de-
scribed in the LSE article by Roch Dunin-Wasowicz. (Dunin-Wasowicz,
London School of Economics 2016). In the face of such a lengthy list of
contributions, was the UK such an awkward partner?
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end of March 2019, but as of writing this thesis (May 2020), there is still
no end in sight, as yes, Britain formally left the EU on the 31.01.2020, but
negotiations regarding future trade relations and more have not
concluded yet, and they will probably take more than a year to fully
finish. Even so, Britain still needs to abide by EU rules at least for the
remainder of 2020, but without any say in the decision-making, as
opposed to when it was a member.
Brexit has been widely perceived as one of the most important crises cur-
rently facing the European integration process, and one of the key topics
on the European Union’s (EU) agenda since the British voters voted to
leave the bloc in an in/out referendum on 23 June 2016. It is for the first
time ever that a Member State withdraws from the EU, in an act disinte-
gration, rather than continuous integration, which is why the thesis will
cover Brexit, rather than another European crisis, as it represents a chal-
lenge to the theories of European integration. Against this background,
the aim of this thesis is to provide at least a partial interpretation of this
unprecedented phenomenon. As such, the thesis asks how and to what
extent various theories of European integration can explain Brexit as a
contemporary crisis of European integration. More specifically, it looks
at Brexit through the perspective of three theoretical approaches: liberal
intergovernmentalism, neofunctionalism and constructivism. (Liesbet
Hooghe, Gary Marks 2019, 1114-1118) (Troitiño, David & Chochia,
Archil 2012) The theories should provide ample explanation of different
mechanisms, events, and an inquiry into the overall background and
particularities of Brexit.
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actors being constructed by these shared ideas, rather than being given
by nature. (Wendt 1999, 1) In simpler terms, ideas, interests and identi-
ties of individuals influence politics, as politics are social in nature, which
means that social interaction between states can shift international pol-
itics. Constructivism represents a new look at politics, and in the case of
European integration, it can explain the shifting attitudes of citizens, and
from that politicians and states themselves, with Brexit being an obvious
example of changing attitudes towards EU and integration.
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Likewise, the thesis will also try to answer these particular sub-
questions:
1.1. How can Liberal Intergovernmentalism explain Brexit?
1.2. How can Neofunctionalism explain Brexit?
1.3. How can Constructivism explain Brexit?
1.3.3 Data
Data will be mostly gathered from primary and secondary sources,
such as news reports, journals, various academic papers, and work. The
reason why these sources will be represented in this thesis is that they
provide ample evidence for the confirmation of certain theories, repre-
senting empirical evidence and as a backbone to the arguments made.
Theories will be source from the books and articles represented in this
sub-section, while information regarding Brexit itself and its surround-
ing impact or the idea behind it will be sourced from news reports,
journals, data analyses.
However, the meat of the thesis will be mostly sourced from these pub-
lications, which provide academic insight into European integration and
theories:
• GEDDES, Andrew. The European union and British politics. 1st pub. Ba-
singstoke: Palgrave, 2004. xv, 252 s. ISBN 0-333-98121-9.
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All these sources are, of course, available in the Masaryk University li-
brary and other literary sources for academic work, such as JSTOR or
ResearchGate. All citations and references are provided in the Bibliog-
raphy section.
Majority of the literature agrees that the most important integration the-
ory is the theory of neofunctionalism, as proposed by Ernst B. Haas, fo-
cusing on the spill over of the integration of one area into further inte-
gration of more areas of policy-making (Helen Wallace, William Wallace,
Mark A Pollack 2005, 15-17), because the functional spill over of ideas
and the impact of the joined sectors of industry or economy made it eas-
ier and more likely for other sectors to integrate (Haas 1958, 282-317),
which made it beneficial for the members, and even enticing for non-
members to join, perpetuating the idea that everything is better together.
Due to the essentiality of this theory with regards to integration, it’s
choice as an explanation for Brexit is without a doubt crucial, as it
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explains key parts of the Brexit debate, which is also why Gary Marks and
Liesbet Hooghe chose this theory, who are important academic re-
searches, and whose approach towards integration theory is a key in un-
derstanding it. (Liesbet Hooghe, Gary Marks 2019)
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Similarly, other literature focusing on the case of Britain and its vision
of Europe identifies the main possible theories behind those visions and
the result of Brexit (Liesbet Hooghe, Gary Marks 2019) (Mads Dagnis
Jensen, Jesper Dahl Kelstrup 2019), such as liberal intergovernmental-
ism and neofunctionalism (Liesbet Hooghe, Gary Marks 2019, 1114-
1118), but also other possible models that could explain Brexit, such as
the rational choice, identity, bureaucratic or other models (Mads Dagnis
Jensen, Jesper Dahl Kelstrup 2019, 30-31); which also similarly draw
from theories such as neofunctionalism or intergovernmentalism, but
present them in the context of a much larger network of causes. Further
literature discusses the realities and dynamics of Brexit within Euro-
pean integration theory, putting emphasis on theories such as post-
functionalism, which they see as the most influential, due to its focus on
mass politics (Czech Sławomir, Monika Krakowiak-Drzewiecka 2019,
598). Best written by Gary Marks and Liesbet Hooghe, “Post functional-
ism has the greatest leverage in explaining the origins, course, and effects
of the UK referendum on EU membership. It provides a nuanced under-
standing of the rise of national identity, the clash between nationalism
and international governance, and the effects on EU politics”. (Liesbet
Hooghe, Gary Marks 2019, 1124)
However, on the contrary to the other presented literature and the latter
mentioned post-functionalism, this thesis presupposes that constructiv-
ism can be used as a better explanation for Brexit, as in itself it is a fairly
new theory, thus only a fracture of academic work mentions it in relation
to Britain or Brexit itself (Dunin-Wasowicz, London School of Economics
2017) or more contemporary studies of individuals and academics
(Galeeva 2016), who agree that culture and identity play a large role for
states in constructing their policies. Politics are not strictly underlined
by functionalist tendencies, as evidenced by the other mentioned theo-
ries, which is why post-functionalism emphasises the role of mass poli-
tics and identity (Czech Sławomir, Monika Krakowiak-Drzewiecka 2019,
598). On the other hand, constructivism is much more focused on identi-
ties and social interaction influencing politics (Fierke 2013, 190-191),
which is why this thesis uses it as the third explanatory theory.
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From the perspective of this thesis and this chapter, it would be im-
possible to present a deep insight into the UK-EU relationship, thus only
a more rough/simpler description will be presented, focusing on the
question why Brexit presents such a hardship for the EU.
Throughout the years the European project faced countless crises that
questioned its position in the world, its decision-making, and its future
prospects (such as the Eurozone crisis, Migrant crisis, Climate change).
(BBC News 2012) (Commission 2020) (BBC News 2016) A large quantity
of these crises had an impact on the idea of European integration, or
more precisely, the manner of integration and lead to discussions and
later reforms and new treaties. (European Parliament 2018)
Now more than ever, the idea of a united Europe is being subjected to a
tough time, as Brexit presents a potential danger to the notion, which
says that the EU cannot dissolve or disintegrate. However, Brexit throws
a wrench into this idea, as it is a possible crack, a form of disintegration
(Sampson 2017, 175-181) (Bickerton 2018, 132-137).
For the continental European Union, the idea of the disintegration of the
EU is a very stressful and scary one, as the years of European integration
decreased the chances of another war erupting in Europe, increased ben-
efits and provided a better ground for European economies to thrive,
while protecting and increasing the rights of European citizens at an un-
precedented scale (HRW 2019). Likewise, having a common currency
(Euro), free movement of goods/services/people/money, the Schengen
Area (borderless Europe) and others prove just how much of an impact
can the EU have on its member states. However, not all of these benefits
were to the liking of the UK, as it had numerous opt-outs (from Schengen,
Euro, rebate and more), which might be signs of British exceptionalism,
but the UK was not the only one with these numerous opt-outs (there is
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As for foreign policy, the UK used to be a key leader in the areas of foreign
policy and defence, due to it having one of the largest militaries within
the EU (with significant soft and hard power capabilities). Without the
UK, the EU foreign policy can become less powerful and more inclined to
foreign aggression and influence. (Grant 2016) However, since the UK
was against a common European defence cooperation (it saw it as a com-
petitor to NATO), the EU can set itself to create a European army (as it
sees the UK, the US and other countries shifting their policies to be more
isolationist). (Henley 2017)
Of course, not every state is lamenting the withdrawal of the UK from the
EU, such as Scotland, in which the First Minister of Scotland, Nicola Stur-
geon, is now hopeful of a new independence referendum, as she sees
Scotland better off without the UK inside the EU (If it gets accepted)
(Zalan 2020). Other states such as France and Germany lament the loss
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of a great partner in the EU, saying that Brexit is an alarm bell for the EU,
saying that the people need more Europe, signalling an interest in a
closer cooperation after Brexit (Daniel Boffey, Jennifer Rankin 2020).
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3 Liberal Intergovernmentalism
As outlined at the beginning of this chapter, this thesis uses the now
well-known theory of liberal intergovernmentalism, which has been
commonly used to explain the rationale behind European integration,
and since Brexit is a part of and consequence of integration, LI can offer
some much needed insight.
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However, what needs to be said is that in the case of Brexit, liberal inter-
governmentalism is unable to fully account for national preferences, as
it cannot rationalize the UK leaving the EU and the government’s prefer-
ence for a ‘hard’ Brexit, since Brexit will affect the economy a lot, since it
will certainly affect businesses, groups and people, whose interests lay
in the commercial sector. (SCHIMMELFENNIG 2018, 1591-1592) These
interest groups are the ones, who should determine state preferences,
but the state preferences contradict them. (SCHIMMELFENNIG 2018,
1589)
The Remain campaign did focus on the economic question, saying that
the UK would be in a worse position, effectively undermining its econ-
omy and international bargaining power (Glencross 2016, 41), but this
argument failed to convince people, as they were more in favour of the
Leave campaign’s rhetoric regarding self-determination, identity issues
(which is an example that the constructivist model can explain best), and
the greatest issue of all, immigration (Glencross 2016, 43- 45).
LI is not able to fully assess the backdrop of Brexit, but it can nearly per-
fectly explain the state of post-Brexit negotiations, especially with re-
gards to the interstate bargaining process between the UK and the EU.
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interests, and in the case of Ireland, even political and security reasons
(due to the Good Friday agreement) (BBC 2018). Based on the difference
in the level of interests, states should opt for a ‘soft’ Brexit, or in the case
of a ‘hard’ Brexit they should make agreements independently of the
other states’ interest, yet these countries have made a strong case for
unity within the EU, as they continue to support the EU itself in making
deals with the UK, making a case against Brexit being the start of the EU’s
disintegration. (SCHIMMELFENNIG 2018, 1589)
There are many examples of a unified European response, like in the case
of Ireland, as it has the same position as the EU, because it rejects any
hard border between Northern Ireland and the Republic, effectively un-
dermining the UKs preference for strong border controls, and placing its
idea of being completely sovereign and independent into jeopardy. (Lisa
O'Carroll 2020) Germany, despite its interests in keeping access to the
UK market has made it clear that the common EU position is also its own.
(Wishart 2017) (SCHIMMELFENNIG 2018, 1589)
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4 Neofunctionalism
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economy would hurt a lot. Furthermore, the cost of exiting the EU for the
UK is enormous, which is why it wanted a transition period of one year,
so it could negotiate specific deals with the EU to soften the blow of the
withdrawal on the economy, as the economies of the UK and the EU were
very intertwined. Likewise, during this transitional period, the UK is still
be under EU jurisdiction for a while. (Edgington 2020)
As for what the costs themselves might be, Hakan Cavlak has some inter-
esting perspectives. According to him, the negotiations take so much
time because of the spill over effect, which should take a while to reverse.
(Cavlak 2019, 71) He also writes that “The externalities and spill-over ef-
fect influence the economic sectors, demographic structure, traditional
family structure, bureaucratic/politic structure, economic sectors. This
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As evidence of all of these, Cavlak points out the issue of Northern Ireland
and its relations with both the UK and the Republic of Ireland (in the EU).
Neofunctionalism and the effects of spill over show themselves in this
region in a large manner, due to the debate surrounding regulations and
non-tariff barriers. As Cavlak put it, “The soft Brexit and hard Brexit dis-
cussions take place at this point. The United Kingdom desires to end the
free movement of people to prevent illegal immigration. On the other hand,
the free movement of labour is an inseparable part of the Single Market for
Brussels. The goods and services of Britain will face non-tariff barriers at
border of the EU which is a largest market for Britain’s economy.” (Cavlak
2019, 71) For sure, Northern Ireland represents the only external land
border between the EU and the UK, accounting for perhaps the largest
headache of Brexit negotiations1. This headache concerns itself with
many matters, such as the fact that the existence of a hard border would
be detrimental to the economic wellbeing of NI, as it relies on the exist-
ence of the four freedoms of the single market (and no border is also a
stipulation of the Good Friday agreement, which ended the Troubles).
(BBC 2018) The impact on the agricultural sector is also important, as
that is subject to EU laws, and NI lands are also economically and physi-
cally attached to the Irish ones (not mentioning the amount of EU subsi-
dies NI farmers receive from the EU). (Cavlak 2019, 75)
Cavlak also discusses the impact of Brexit on the UK’s institutions, such
as DEFRA (Department for Environment, Food and Rural Affairs), which
according to Cavlak will be the institution most impacted by Brexit and
the costs surrounding it since, “DEFRA’s scope of authority has always
been at the centre of European integration discussion as issues within DE-
FRA’s scope have been difficult to be integrated as well as hard to be
1 For a detailed in-depth explanation, I recommend reading this article by Jen Kirby,
which explains most of the issues surrounding the Irish border.
https://www.vox.com/world/2019/2/18/18204269/brexit-irish-border-ba-
ckstop-explained, accessed 03.05.2020
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There could also be a discussion about how the restriction of the free
movement of people between Ireland and Northern Ireland might impact
the British economy, or how Brexit revives issues that would be of no
particular concern, such as the case of Scottish independence. In Scot-
land, the EU institutions have been an integral part of the working of the
state (with the EU funding many Scottish initiatives) (Goodier 2018), and
thus the workings of the Scottish institutions and government have been
more in line with the EU’s. This was a result of integration, which im-
pacted Scotland through the spill-over effect. The benefits of the EU
membership led Scotland to vote in favour of remain (both in the Scottish
and Brexit referendums), signalling how integrated Scotland was with
the EU, despite already being part of a larger state (the UK). (Cavlak
2019, 74)Thus, the talks of Scottish independence began again, as the
country would rather remain in the EU, than outside of it with the UK,
showcasing the gradual shift of loyalty towards supranational institu-
tions, which citizens see as better alternatives and more beneficial than
the national ones (Carrell 2020) (Haas 1958, xiv)
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5 Constructivism
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The idea of a strong country with rich history played into the behaviour
of the UK, as it was often unwilling to commit itself to causes, which
would lessen its role in the world (unwillingness to join the European
Communities at first or Schengen, opposition to a European defence co-
operation and more) (Geddes 2004, 2-3,156) and it tried to have its own
way in many cases, such as how the European cooperation worked, often
going for opt-outs during the creation of European treaties (since it saw
the new treaties as having a negative impact on its sovereignty, so the UK
would rather go its own way). (Geddes 2004, 18-19)
The perception in the UK was that the EU was often restricting its
sovereignty, imposing laws that do not benefit the UK, asking too much
from the country, forcing it to do something that was not in its best
interests (Glencross 2016, 37-41). This attitude, of course, lead to a rise
in populistic rhetoric, fueling the fire of populism more and more
(certainly not helped by the eurozone or migrant crisis), leading to
debates about national sovereignty and more (Glencross 2016, 35-37),
circling back to the problem of the UK’s identity crisis.
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As Fareed Zakaria wrote it in his article, Brexit marks the end of Britain’s
role as a great power (Zakaria 2019), but maybe now will be the time,
when the identity crisis will subside and the UK will finally find its role
in the world, due to being left to its own accords. This could lead to inter-
esting dynamics in the future, but those dynamics are hard to predict,
and this thesis does not concern itself with predictions of the future, but
merely with the recital of past and contemporary dynamics that influ-
ence and surround the current political climate of Brexit.
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6 Conclusion
The aim of this thesis was to explain Brexit through three European
integration theories (neofunctionalism, liberal intergovernmentalism,
constructivism), by answering several key questions.
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programmes were funded by the EU, whose results were beneficial to the
economy, which is evidenced by the appreciation of the EU by the
Scottish people (supporting the argument of Ernst B. Haas, of a shifting
of loyalty towards supranational institutions). The impact of Brexit is
and will be felt by major institutions of the UK such as DEFRA, as each
institution needs to make separate agreements with EU and non-EU
countries, which costs not only time, but also money and manpower.
DEFRA is unprepared to deal with Brexit, and so are other institutions
and the British government, which itself called for a transitional period
to deal with the fall-out of the voluntary spill-back decision of Brexit.
To sum it up, all of the theories explain certain parts of Brexit. Liberal
intergovenmentalism cannot properly explain the national preferences
of the UK, however with inclusion of constructivism, it can be said that
the UK was and is in a deep identity crisis, which saw the government
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BIBLIOGRAPHY
7 Bibliography
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BIBLIOGRAPHY
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LIST OF TERMS AND ACRONYMS
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