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VOCATIONAL TRAINING NO 15 EUROPEAN JOURNAL

Wouter
Van den Berghe
Director Quality
Application of ISO 9000
Management Services,
Deloitte & Touche
Belgium
standards to education
and training

Although ISO 9000 certifica- Introduction of such a certification process remains


tion is still a marginal phe- doubtful not to mention costly.
nomenon in the education Over the last decade Quality has become
and training world, the a central preoccupation of companies, This article aims to shed some light on
numbers of certified institu- public services and non-profit organisat- these and related issues. It is based mainly
tions and departments are ions in Europe. One of the more visible on a study I conducted, published in 1997
incr easing, particularly features of this quality wave has been, as a Cedefop Report2. The reader will find
amongst continuing, and particularly in Europe, the certification of more information in that publication, in
vocational education and the quality assurance mechanisms of or- particular on interpretation and imple-
training providers. ganisations on the basis of the so-called mentation issues.
But many practitioners in ISO 9000 standards. This form of cer-
the education and training tification is becoming the de facto basic
world wonder whether this quality standard in many industrial sec- What is ISO 9000 ?
development is the best way tors of Europe.
to improve quality within ISO 9000 is the commonly used name
education and training in- The ISO 9000 standards were originally to label a series of international stand-
stitutions. For many, the conceived for companies in the manu- ards for quality assurance within organis-
real added value of such a facturing industry. Since the early 1990s, ations: ISO 9001, ISO 9002, ISO 9003, ISO
certification process re- however, the application of the norms has 9004 (and their subsets). The most im-
mains doubtful not to quickly spread to other sectors of the portant norms to be considered in the
mention costly economy. The developments over the last context of this contribution are ISO 9001
years have resulted in a broad recogni- and ISO 9002. The official title for ISO
tion of the value of an ISO 9000 certi- 9001 is Quality systems. Model for qual-
ficate and its function as a quality label. ity assurance in design, development,
production, installation and servicing.
Quality is, of course, not a new phenom- ISO 9002 is similar to ISO 9001, except
enon in education and training, but the that design is not included. Unlike some
interest for ISO 9000 is of relatively re- other documents and standards of the
cent origin. Since the early 90s a number ISO 9000 series, these two norms allow
of education and training institutions in certification of organisations by a third
Europe have obtained an ISO 9001 or ISO party.
9002 certificate1. Although ISO 9000 cer-
tification is still a marginal phenomenon In the definition of ISO 9001 and 9002,
in the education and training world, the the term quality assurance is the key
numbers of certified institutions and de- concept. The official international defini-
partments are increasing, particularly tion of quality assurance, according to ISO
amongst continuing, and vocational edu- 8402, is: All the planned and systematic
1) The difference between ISO 9001 cation and training providers. activities implemented within the quality
and ISO 9002 is explained later in this
article. system, and demonstrated as needed, to
But many practitioners in the education provide adequate confidence that an en-
2) The full title of the report is Ap- and training world wonder whether this tity will fulfil requirements for quality.
plication of ISO 9000 Standards in
Education and Training. Interpretation development is the best way to improve
and Guidelines in a European Per- quality within education and training in- Such a definition is, in my view, not very
spective. stitutions. For many, the real added value practical. A more operational view is to
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describe the requirements of quality as-


surance as follows: Table 1:
ISO 9001 ISO 9002 Quality System Requirements:
defined quality criteria for all activities
to which quality assurance applies;
Clausesor Criteria

procedures to ensure that quality stand- 4.1 Management responsibility


ards are met; 4.2 Quality system
4.3 Contract review
procedures that are systematically 4.4 Design control
monitored for conformance; 4.5 Document and data control
4.6 Purchasing
identification and analysis of causes 4.7 Control of customer-supplied product
non-conformance; 4.8 Product identification and traceability
4.9 Process control
elimination of the causes of problems 4.11 Control of inspection, measuring and test equipment
through appropriate corrective action; 4.12 Inspection and test status
4.13 Control of nonconforming product
The principles of quality assurance can 4.14 Corrective and preventive action
be applied to a particular activity, or to 4.15 Handling, storage, packaging, preservation and delivery
all processes in the organisation. If the 4.16 Control of quality records
quality assurance is applied throughout 4.17 Internal quality audits
an organisation for all its activities, a 4.18 Training
quality system is in place. Such a qual- 4.19 Servicing
ity system may also be called a quality 4.20 Statistical techniques
control system or alternatively a quality
management system (more modern us-
age).
conducting internal audits and holding () ISO 9001 and ISO 9002
Essentially, ISO 9001 and ISO 9002 con- regular management reviews. are system standards. The
tain a number of requirements which certificates awarded indi-
should be met by such a quality system. Meeting most of these requirements is not cate that the organisation
Some of these requirements are put in a serious obstacle in a well-run organisa- is well able to meet the
fairly general terms; others are more de- tion. In an effective, high performance needs and demands of its
tailed. The English version of the norms organisation, often the only thing requir- customers in a planned and
contain about 8 pages, most of which ed is to write down, in a formalised man- controlled way. But the la-
consist of the requirements of Section 4, ner, the way one is currently operating. bel does not guarantee that
arranged into 20 clauses or criteria. Meeting some of the more specific qual- the products or outputs of
(see table 1). ity assurance requirements, however, al- the organisation are of the
most inevitably requires extra work. This highest possible quality
The requirements of the standards can be includes the introduction of new activi- level (although this is often
grouped into three sets: ties and processes, particularly document suggested for publicity pur-
control, internal audits and systematic poses). () ISO 9000 cer-
general requirements of a quality sys- corrective action. tificate for an education or
tem (management responsibility, quality training organisation pro-
manual and procedures, appointment of It is important to recall that ISO 9001 and vides assurance that it is
a quality manager, availability of quali- ISO 9002 are system standards. The cer- well organised and that the
fied resources and staff, ...); tificates awarded indicate that the organi- outcomes of programmes
sation is well able to meet the needs and and courses meet the in-
the need to maintain documented pro- demands of its customers in a planned tended goals and needs of
cedures on the key processes of the or- and controlled way. But the label does the users; however, it does
ganisation (design, development, pur- not guarantee that the products or out- not necessarily guarantee
chase, delivery, etc.) - and implement puts of the organisation are of the high- that the content of these
activities according to the procedures; est possible quality level (although this courses and programmes
is often suggested for publicity pur- meet a particular educa-
specific quality assurance mechanisms, poses). This system of process approach tional standard.
including test and inspection, keeping to quality may sometimes be in a con-
quality records, dealing with non-con- flict with a more absolute product ap-
formance, keeping documents up-to-date, proach to quality. For instance, an ISO
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Thus, the terms norms 9000 certificate for an education or train- is often limited in scope to certain in-
and standards, as used ing organisation provides assurance dustrial sectors, and has to be renewed
within the ISO 9000 context, that it is well organised and that the out- regularly.
differ from traditional edu- comes of programmes and courses meet
cation and training con- the intended goals and needs of the us- When an organisation is interested in
cepts. ers; however, it does not necessarily obtaining an ISO 9000 certificate, in gen-
guarantee that the content of these eral the following stages will occur:
courses and programmes meet a particu-
lar educational standard. development by the organisation of a
quality system which is compliant with
Thus, the terms norms and standards, the requirements of the norm (ISO 9001
as used within the ISO 9000 context, dif- or ISO 9002);
fer from traditional education and train-
ing concepts. Official standards for edu- selection of an accredited certification
cation and training in general refer to re- body;
quired inputs (e.g. qualifications of
teachers, contents of programmes, ) or (optional) pre-audit of the quality sys-
sometimes outputs (documents, diplo- tem by the certification body, followed
mas, ). ISO 9000 looks at quality in a by corrective measures (if needed);
different way, by requiring general prin-
ciples to be followed for controlling the full compliance audit by the certifica-
processes within the institutes (process tion body, and award of the certificate (if
or system standards). successful);

Another important difference is that tra- several interim audits with a more lim-
ditional education and training standards ited scope over a period of three years
are often very specific and linked to a (typically every 6-8 months, but at least
particular context. This feature makes once a year);
such norms more relevant and verifiable,
but also more time dependent (risk of A certificate is only valid for a period
rapid obsolescence) and less transferable. of three years.
On the other hand, ISO 9001 and 9002
are much more general, which implies that It should be clear that the certifying body
considerable interpretation is always nec- has to be paid for its services. This may
essary (a sensitive issue for educational- involve a considerable cost (for an edu-
ists!) and certain issues may not be ex- cation and training institute it will typi-
plicitly considered. cally vary between 2500 and 10 000 ECU).
However, this expenditure is only a small
part of the overall cost of certification:
How certification works the lions share is represented by the sala-
ries of the staff members involved with
the implementation of the quality system
One of the interesting features of ISO (possibly assisted by external consulting).
9001 and 9002 is that compliance with
the requirements of the standard can be The relatively general formulation of the
certified by an independent third party. ISO 9000 standards, the national accredi-
Certification is essentially organised at tation structure, and the competition
national level. Most developed countries between certifying bodies have all con-
have now a national organisation that is tributed to slightly different practices in
entitled to accredit national certifica- relation to the award of ISO 9000 certifi-
tion bodies. Following a successful ac- cates. There is little hard evidence, but
creditation process, the certification body most experts would agree that not all cer-
is then allowed to award recognised tificates have the same value. Certifica-
ISO 9001 or 9002 certificates. This ac- tion processes are said to be easier
creditation process requires the fulfilment within certain countries or with certain
of very tough criteria for the certifying certification bodies. In my experience, this
body, both in terms of the qualifications problem certainly exists and should be
of the auditors employed and its inter- taken seriously. On the other hand, the
nal organisation. Moreover, accreditation issue should not be exaggerated. Because
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of the process nature of an ISO 9000 based These results, when interpreted in an edu- () the relevance and
quality system, with all its feedback loops cation and training context, are consist- cost-effectiveness of certifi-
and corrective actions, it is very difficult ent with my findings and experience re- cation will depend highly
to run a poor ISO 9000 system. Actu- garding education and training providers. on the specific context: both
ally, very few cases of falsification of the external demands and
systems or certificates have emerged so But the same study also identified a opportunities, as well as
far at least in an accredited environ- number of important hurdles and prob- the internal needs and pos-
ment. A useful analogy is the differences lems in relation to ISO 9000 certification: sibilities.
between the value and quality of similar
looking degrees of universities across the time required to write the manual
Europe: these differences are much more the high volume of paperwork
important than those between ISO 9000 the high cost of implementation
certificates. the time required to complete imple-
mentation
the high cost of maintaining the stand-
Advantages and disadvan- ard
the lack of free advice
tages of ISO 9000 certifica- the lack of consistency between audi-
tion tors
the time spent checking paperwork
Before we look at the appropriateness of prior to audits
ISO 9000 in education and training, it is
useful to examine the advantages and dis- Only the first of these drawbacks was
advantages as they are perceived in com- mentioned by over 30% of the respon-
panies. Both at national and international dents; the last item by 16%. The survey
level, a growing number of studies have concluded on this point that,
been conducted which examine the ben-
efits and drawbacks of ISO 9000 certifi- The high cost of implementation - in
cation. terms of time, volume of paperwork and
money - were seen as the major problems
An in-depth UK survey ISO 9000 - Does related to ISO 9000 across all groups.
it work? conducted in 1995 by the Man- Small organisations generally considered
chester Business School on behalf of SGS, drawbacks to be more significant, when
found eight reasons for seeking certifica- compared to the benefits, than did large
tion which were each listed by at least organisations. The same pattern was seen
half of the respondents to the survey (in in concerns with ongoing maintenance of
decreasing order of importance): the standard (...).

future customers likely demand for The above arguments for and against ISO
ISO 9000; 9000 summarise, in my view, much of the
to increase consistency of operations; debate about the benefits and drawbacks
to maintain/improve market share; which companies associate with it. It also
to improve service quality; highlights that the relevance and cost-ef-
customer pressure; fectiveness of certification will depend
a good promotional tool; highly on the specific context: both the
to make operations more efficient; external demands and opportunities, as
to improve product quality. well as the internal needs and possibili-
ties.
The survey also found that,
It should therefore be no surprise that
small companies principally sought the there are still many successful and high
standard to improve market share and for quality companies which are not ISO 9000
promotional purposes. (...) The larger the certified. Indeed, going for ISO is only
organisation, the more likely it was to cite one way to develop and maintain a qual-
customer pressure as a reason for certifi- ity system, to drive the quality assurance
cation. The service sector emphasised the process and to engage in a spiral of con-
importance of increasing market share tinuous improvement. But it is an ap-
and the need to improve consistency of proach which is highly visible to the out-
operations and quality of service (...). side world (unlike other quality ap-
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It remains an open ques- proaches) and which sets a clear perspec- a method for developing a full quality
tion, however, whether ISO tive for the employees. assurance system which covers the whole
9000 will ever deeply pen- organisation;
etrate the public and non- I feel that we are gradually evolving into
profit sector (including the a situation more rapidly in some Euro- the need to improve a number of spe-
education world). This is pean countries than in others where ISO cific activities of the organisation, which
linked to questions of ap- 9001 or 9002 will be considered as a mini- are currently badly organised.
propriateness, interpreta- mum quality requirement for manufac-
tion and cost, as well as to turing firms. This is already the case for In each of these areas, several factors may
the quality culture of such certain industrial sectors in some Euro- play a role. The importance of these argu-
organisations. pean regions. This idea is also penetrat- ments is likely to vary strongly depend-
ing the commercial service sector, albeit ing on the nature of the organisation and
at a lower pace and in a less uniform way its external environment. Overall, it would
(in general because the relevance of the appear that the reasons for seeking certi-
certificate is not obvious, or because there fication in the education and training
may be more interesting alternatives, i.e. world do not differ fundamentally from
sector-specific standards). It remains an those elsewhere.
open question, however, whether ISO
9000 will ever deeply penetrate the pub- Arguments in favour of certification
lic and non-profit sector (including the should, of course, be balanced against the
education world). This is linked to ques- counter-arguments and disadvantages.
tions of appropriateness, interpretation These are numerous and in the light of
and cost, as well as to the quality culture the limited number of certified education
of such organisations. or training institutes still outweigh the
positive arguments. There are several
possible disadvantages:
Appropriateness of the
Overall, it would appear interpretation problems (the standard
that the reasons for seeking
standard for education was initially designed and written for the
certification in the educa- and training manufacturing industry);
tion and training world do
not differ fundamentally The late 1980s saw the introduction of in- insufficient relevance of certain com-
from those elsewhere. dustrial quality concepts (such as Total ponents of the norm (and lack of specific
Quality Management TQM) in a few mention of some issues which are con-
education and training institutes; in the sidered critical to education and training);
early 1990s, some pioneers embraced ISO
9000. Since then, there has been increas- inappropriate standardisation in use
ing evidence that the adoption of TQM and application;
principles and methods including those
embedded in the ISO 9000 requirements time consumption and cost;
could be relevant and useful for educa-
tion and training organisations. risk of increased bureaucracy;

There are a number of arguments which specific problems linked to particular


underpin the move towards ISO 9000 cer- types of education and training institutes.
tification. Not surprisingly, education and
training organisations seek in this way to It must thus be recognised that the ISO
improve or maintain the quality of their 9000 approach has some inherent weak-
education or training provision. But of- nesses for education and training, which
ten there are other arguments put forward, require skill and creativity to address. The
in particular the following: cost and time implications are a real hur-
dle, and there is a serious risk of a bu-
the promotion of a high quality image, reaucracy.
with high visibility and credibility;
Overall differences by type of education
a way of responding to external fac- and training provider are:
tors, in particular pressures from custom-
ers (directly or indirectly), governments compared to schools and higher
or funding bodies; education institutions, the providers of
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continuing education and training are This choice has many implications when A critical point in the inter-
more likely candidates for ISO 9000 (mar- interpreting a number of clauses of ISO pretation for education and
ket pressure; more similarity with other 9001/9002. For instance, when learning training is the definition of
industrial services); is taken as the product, then the test- the product: is it the learn-
ing and inspection requirements con- ing output, the learning
vocational education and training pro- cern assessment and evaluation of stu- process, or rather the edu-
viders are more suitable candidates for dents and trainees. However, when the cation or training pro-
ISO 9000 than general education institutes course (programme) or training is con- gramme which is offered?
(closer linkage to the employment mar- sidered as the product then the testing () based on comparisons
ket with its quality ethos and culture); and inspection requirements refer to the with other service sectors,
evaluation of a course or training ses- given the real difficulty of
ISO 9000 is more likely to be appro- sion by students, trainees and/or their controlling the lear ning
priate for larger than for small insti- employers. Interestingly, however, even process, and the choices
tutes (economies of scale, and need for when learning is be taken as the defi- made by many certified
more formalised process control in larger nition of the product, in practice it might education and training or-
institutes); lead to a similar implementation of the ganisations across Europe,
quality system. This is related to the the most operational way to
the more varied and customised the somewhat redundant nature of the ISO define the product in an
provision of education and training is, the 9000 requirements, and the fact that the ISO 9000 context is as, ()
more time it will take (an the more costly systematic application of the principles
it will be) to obtain an ISO 9000 certifi- of quality assurance is almost independ-
cate. ent of the definition of the product. In
particular the general clauses 4.2 (Qual-
ity system) and 4.9 (Process control) are
Interpretation issues formulated in such a way that quality as-
surance arrangements must be in place
A particular feature of the ISO 9000 stand- for all critical processes, whether these
ards is the need for interpretation. Many are covered by a specific clause of the
of the specifications laid down in the norm or not.
standards need careful analysis and ad-
equate interpretation before they can be There is a second, more challenging set
applied in a particular education or train- of interpretation problems. These concern
ing context. This relates to both the ter- the assessment of how the requirements
minology and to the processes concerned. can be addressed effectively with mini-
This feature is both an advantage (it al- mum overheads. Indeed, in many situa-
lows considerable flexibility and custom- tions it is often not straightforward to say
ising, over time) and a drawback (it may whether or not a particular requirement
lead to insecurity and be the source of is entirely fulfilled. Consider, for instance,
controversy and resistance). the need to define and analyse design
input factors during the design process
A critical point in the interpretation for (Clause 4.4 in ISO 9001). It will be a mat-
education and training is the definition of ter of judgement by the institution and
the product: is it the learning output, the auditor of the certifying body to de-
the learning process, or rather the edu- cide whether all critical input factors are
cation or training programme which is of- being considered.
fered? This is not just an academic prob-
lem, but one which has implications How such issues are dealt with has major
throughout the standard. In my view, based consequences for the implementation and
on comparisons with other service sectors, maintenance of the quality system. The
given the real difficulty of controlling the ISO 9000 standards contain many parts
learning process, and the choices made by which need subjective assessment for a
many certified education and training or- particular education or training provider.
ganisations across Europe, the most op- This is, actually, both a strength and a
erational way to define the product in weakness of ISO 9000.
an ISO 9000 context is as,
A third, related type of interpretation dif-
the education and training services of- ficulty concerns the rigour and extent to
fered by the organisation, including as- which the requirements have to be fol-
sociated products, tools and services. lowed, such as:
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The whole process from the level of detail needed for docu- there is already a quality policy (at
decision to certification for ments (particularly procedures and work least implicitly), with standards which are
a typical organisation is instructions) which has considerable im- taken seriously;
typically in the range of 12 plications for document control
the organisation has been, and is likely
to 18 months. Thus, the rel-
the nature and quantity of quality to remain, fairly stable in terms of activ-
evance of adopting ISO
records often the biggest stumbling ities and personnel (no other important
9000 should not only be con-
block in the effective maintenance of the change, expansion or streamlining opera-
sidered in terms of the ad-
quality system, and the seeds for a bu- tions are going on);
vantages and drawbacks of
reaucratic, paper-based system
the quality system, but also there is a good understanding of all
in the light of the complex- the specificity of the quality policy and internal processes;
ity and risks of implemen- objectives
many standardised documents exist al-
tation.
the frequency of internal audits and ready;
management reviews
the organisation is financially sound;
the scientific validity of the evaluation
a qualified, motivated and credible
and assessment methods used.
(highly regarded) person is available to
co-ordinate the implementation;
No authoritative guidance exists on such
issues. What needs to be done in prac- the senior management believes in the
tice depends on the complexity of the value of certification and is committed to
organisation, the demands from custom- it;
ers, and the educational attainment of the
the number of significantly different
staff. It is safe to check in advance that
types of customers, products and services
the certifying body agrees with the inter-
is limited;
pretation adopted.
the organisation is small with only a
few departments and maximum of a few
Implementation of an ISO dozen staff members.
9000 based quality system If most of these conditions are met, the
organisation can safely engage in an ISO
The whole process from decision to cer- 9000 exercise. But if none or only a few
tification for a typical organisation is typi- apply, then it is likely that the journey
cally in the range of 12 to 18 months. towards certification will be long and
Thus, the relevance of adopting ISO 9000 paved with obstacles. A bonus in all cases
should not only be considered in terms would be the easy access to professional
of the advantages and drawbacks of the advice and to the experience of similar
quality system, but also in the light of the organisations who have already imple-
complexity and risks of implementation. mented the requirements.
After all, establishing a quality system is
not merely adding a few bells and whis-
tles to an existing organisation, but is an Conclusions
important change process which will
have an impact on the whole organisa- Although experience with ISO 9000 in the
tion. It is well known from management education and training world is still lim-
consulting practice that the implementa- ited (a few dozen institutions in each of
tion of change processes is always diffi- the larger or more advanced European
cult and risky, and that resources are of- countries), first lessons can already be
ten underestimated. This also applies to drawn.
the whole certification process.
The tangible and often compulsory re-
Although it is dangerous to generalise quirements of ISO 9001 and 9002 stand-
about the ideal starting requirements for ards (quality policy, quality manual and
ISO 9000, my personal top ten are the procedures, regular audits, ...) provide an
following initial conditions that: overall, measurable framework for qual-
ity efforts, which can be used by an edu-
the organisation is already well organ- cation and training organisation. Experi-
ised; ence so far indicates that ISO 9000 based
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quality systems contribute to improved ity standards for education and training. ISO 9000 is not in contra-
customer service, high levels of quality Ideally, they should be complemented by diction with any sound edu-
assurance and a dynamic of continuous content-related criteria. What remains cational standards or prac-
quality improvements. ISO 9000 is not in unresolved as yet is the question of the tice, and can easily comple-
contradiction with any sound educational cost-effectiveness of the certification proc- ment other quality ap-
standards or practice, and can easily com- ess and the maintenance of the quality proaches (in particular
plement other quality approaches (in par- system. More research is needed on the those focussing on input- or
ticular those focussing on input- or out- impact of ISO 9000 certification, its rele- output-factors).
put-factors). Obtaining a certificate en- vance, its cost-effectiveness, and the
hances the organisations quality image coherence with traditional quality con-
and underpins its quality claims in an in- cepts and mechanisms used in education
creasingly competitive environment. It and training. More studies over a suffi-
may enable an education or training pro- cient time scale will also be required to
vider to fulfil or exceed externally im- examine whether the benefits reported
posed quality criteria. continue to outweigh the drawbacks, and
under what assumptions the experience
But even education and training organi- of implementing an ISO 9000 based qual-
sations who are generally very positive ity system may be transferable to other
about ISO 9000, recognise a number of education and training organisations. () ISO 9000 norms are
problems and drawbacks in the operation not the best imaginable
of the system. The problems most fre- In conclusion, even the increasing number quality standards for edu-
quently reported are: the continuous vol- of ISO 9000 certificates is unlikely to put cation and training. Ideally,
ume of paperwork involved, the cost of an end to the vivid debate about quality they should be comple-
certification and the ongoing cost of main- assurance and quality management in mented by content-related
tenance, the risk of evolving towards a education and training institutions. Even- criteria. What remains un-
bureaucracy focused on procedures and tually, it will be the market which will resolved as yet is the ques-
registrations, and the difficulty of imple- decide whether the cost of certification is tion of the cost-effective-
menting changes fast. worthwhile, whether its benefits will out- ness of the certification
weigh the drawbacks, and whether any process and the mainte-
It should be recognised that the ISO 9000 other national or international quality nance of the quality sys-
norms are not the best imaginable qual- scheme is more appropriate. tem.

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