National Action Plan - GOV.WALES

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National Action PlanPreventing and Respondingto Child Sexual AbuseWorking Together to Safeguard PeopleJuly 2019

National Action PlanPreventing and Responding to Child Sexual AbuseIssued under Section 28 of the Children Act 2004.Chapter / ContentsMinister’s Foreword2Introduction3Monitoring implementation of the Plan4Objectives5Arrangements for the Prevention of Child Sexual Abuse (CSA)Objective 1Objective 2Objective 3Objective 46Arrangements for the Protection of Children at risk of Child Sexual Abuse (CSA)Objective 5Objective 6Objective 713Arrangements for the Support of Children who are sexually abusedObjective 8Objective 9Objective 1018Mae’r ddogfen yma hefyd ar gael yn Gymraeg.This document is also available in Welsh.Digital ISBN 978-1-83876-727-3 Crown copyright 2019WG38341

MINISTER’S FOREWORDIn 2014 the Social Services and Well-being (Wales) Act 2014 (‘the Act’) establisheda robust and strengthened safeguarding framework for children and adults.There has been much progress since the introduction of the Act with leadership andimprovements in safeguarding driven by the Safeguarding Boards and the NationalIndependent Safeguarding Board.However, we are clear that there can be no complacency and that tackling abuseand harm to children and adults must remain a key priority for the WelshGovernment and our partners. Our commitment to deliver this National Action Planhas been informed by the important work of the Cross Party Group on PreventingChild Sexual Abuse. Evidence from the Independent Inquiry into Child Sexual Abuse(IICSA) has also been important in informing this National Action Plan.Sexual abuse has a devastating impact on childhoods and throughout life. We mustwork together to do everything we can to prevent child sexual abuse, to protectchildren at risk and to support children to recover from the significant harm thatsexual abuse causes.Julie Morgan, AM, Deputy Minister for Health and Social Services.

IntroductionThe words ‘child’ and ‘children’ are used throughout this Plan to mean any person upto the age of 18.This National Action Plan (the ‘Plan’) considers Child Sexual Abuse (CSA) includingChild Sexual Exploitation (CSE) and Harmful Sexual Behaviour (HSB). Lookingforward this National Action Plan will assist us in assessing the implementation offorthcoming statutory guidance, Working Together to Safeguard People- Volume 7Safeguarding children from Child Sexual Exploitation and the All Wales PracticeGuides on CSE and HSB once issued by the Safeguarding Boards with the WalesSafeguarding Procedures.Arrangements in relation to children at risk are set out in Working Together toSafeguard People- Volume I – Introduction and Overview and Working Together toSafeguard People Volume 5 – Handling Individual Cases to Protect Children at Risk.Section 130(4) of the Social Services and Well-being (Wales) Act defines a “child atrisk” as a child who:a) is experiencing or is at risk of abuse, neglect or other kinds of harm;andb) has needs for care and support (whether or not the Local Authority ismeeting any of those needs).In developing this Plan we have considered evidence from the Cross Party Group onPreventing Child Sexual Abuse and from the Independent Inquiry into Child SexualAbuse (IICSA).We have worked with multi-agency stakeholders from the Safeguarding Boards,statutory and third sector partners to agree this Plan. We have also benefitted fromthe advice and support of adult survivors of CSA.The Plan should be read in conjunction with the Welsh Government NationalStrategy on Violence against Woman, Domestic Abuse and Sexual Violence CrossGovernment Delivery Framework 2018-2021 and An online safety action plan forchildren and young people in Wales (2018)This Plan sets out the actions the Welsh Government will take to prevent ChildSexual Abuse (CSA), to protect children from CSA and to support children who aresexually abused. We cannot do this alone and this National Action Plan also includesactions for the Safeguarding Board partners who have a lead role in theimplementation of this Plan.3

DefinitionsChild sexual abuse involves forcing or enticing a child to take part in sexual activities,whether or not the child is aware of what is happening, including: physical contact,including penetrative or non-penetrative acts; non-contact activities, such as involvingchildren in looking at, or in the production of, pornographic material or watching sexualactivities or encouraging children to behave in sexually inappropriate ways.Child Sexual Exploitation (CSE) -Is a form of sexual abusethat can include sex or any form of sexualactivity with a child; the production ofindecent images and/or any other indecentmaterial involving childrenInvolves a childIt occurs to those up to the age of 18 yearsoldInvolves some form of exchangeThe exchange can include the giving orwithdrawal of something; such as thewithdrawal of violence or threats to abuseanother person.There may be a facilitator who receivessomething in addition to or instead of thechild who is exploited.Children may not recognise the exploitativenature of the relationship or exchange.Children may feel that they have givenconsent.Harmful sexual behaviours (HSB) can be defined as: sexual behaviours expressedby children under the age of 18 years that are developmentally inappropriate, maybe harmful towards themselves or others, or be abusive towards another child,young person or adult. This definition of HSB includes both contact and non-contactbehaviours (grooming, exhibitionism, voyeurism and sexting or recording images ofsexual acts via smart phones or social media applications).4

Monitoring the implementation of the PlanThe six Safeguarding Boards in Wales will report on progress against relevantactions included in this Plan. The Welsh Government will monitor and report onprogress against the actions set for the government. There will be three reportingperiods.Period 1Reporting periodDate to reportReportingarrangementsPublication date up to31 December 2019Evidence to be submitted tothe Welsh Government by theSafeguarding Children Boards31 January 2020.The SafeguardingChildren Boards willprovide evidence thatmeasures have beenput in place to ensurethat partners areaware of the actionscontained in the Planand have agreedarrangements forevidencingimplementation of thePlan inPeriod 2 andPeriod 3.The WelshGovernment will reporton progress againstrelevant actions set forPeriod 1.Period 21 January 2020 to31 December 2020.Evidence to be submitted tothe Welsh Government by theSafeguarding Children Boards31 January 2021.The SafeguardingChildren Boards andthe Welsh Governmentwill report againstrelevant actions set forPeriod 2.Period 31 January 2021 to31 December 2021.Evidence to be submitted tothe Welsh Government by theSafeguarding Children Boards31 January 2022.The SafeguardingChildren Boards andthe Welsh Governmentwill report againstrelevant actions set forPeriod 3.The WelshGovernment willreview evidence on theimpact of the Plan atthe end of Period 3.5

ObjectivesThis Plan sets thirty three actions against ten key objectives that the WelshGovernment expects to be implemented by 31 December 2021.Arrangements for the Prevention of Child Sexual Abuse (CSA)Objective 1: Challenge public attitudes towards CSA and support a culture wheretalking about CSA is not seen as a taboo subject in a way that can be exploited byperpetrators.Objective 2: Increased awareness in children of the importance of safe, equal andhealthy relationships and that abusive behaviour is always wrong.Objective 3: Increased awareness of how help to keep children safe from CSA forparent/carers, practitioners and the public.Objective 4: Increased awareness of how corporate safeguarding can contribute tothe prevention of CSA.Arrangements for the Protection of children at risk of Child SexualAbuse (CSA)Objective 5: Increased awareness in children of safe ways to disclose sexual abuseor risk of sexual abuse and of what should happen when they tell.Objective 6: Increased awareness in non-abusing parent/carers of what shouldhappen if a child is sexually abused, of how to support children and of how to accesssupport for themselves.Objective 7: Practitioners have access to resources and training to equip them toprovide effective, timely and appropriate responses to children at risk of or abusedthrough CSA.Arrangements for the Support of children who are sexually abusedObjective 8: Evidence on the prevalence of CSA is collected to inform the planningof services for children who have been sexually abused.Objective 9: Children, who have been sexually abused, sexually abused throughCSE ,HSB and online sexual abuse have access to trauma-informed services andappropriate therapeutic support based on their individual care and support needs toimprove well-being and prevent repeat abuseObjective 10: Children who have been sexually abused are given information aboutand appropriately referred into adult support services as they approach 18 years ofage.6

ActionsArrangements for the Prevention of Child Sexual Abuse (CSA)The best way to respond to CSA is to stop it happening in the first place. We need topromote a better understanding of CSA for children, their families, practitioners,public bodies and the public so that they can recognise and respond to CSA risks.Objective 1: Challenge public attitudes towards CSA and support a culturewhere talking about CSA is not seen as a taboo subject in a way that can beexploited by perpetrators.ActionOwnerDelivery periodA1 -Develop a public awarenesscampaign to promote attitudes to CSAthat will contribute to the prevention ofabuse.A2- Promote the public awarenesscampaign in each region across Wales.Welsh GovernmentPeriod 1Safeguarding Boardpartners.Period 2Evidencing the implementation of actions:ReportingA1- Public awareness campaign to promote attitudes to CSA thatwill contribute to the prevention of abuse had been delivered.A2- Safeguarding Children Boards report evidence of campaignpromotionEnd of Period 2End of Period 2End of Period 3Child Sexual Abuse (CSA) is a particularly contentious form of child abuse.Common understandings and representations of the nature and prevalence of CSAhave changed over time. This has included historically attitudes towards CSAshaped by challenging debates where CSA has been denied, disbelieved and wherevictims have been blamed for their own abuse.1Accounts provided by survivors of CSA to the IICSA Truth Project illustrate in verystark terms, how the ways in which CSA is understood and talked about hashistorically silenced victims even when they tried to tell people what was happeningto them.Campaign material will need to consider the ways in which attitudes towards andmisconceptions about CSA are shaped by gender, ethnicity and culture, sexualityand disability.We need to help people understand how the ways in which we talk – or don’t talkabout- CSA is an important part of changing attitudes and preventing abuse. Incommunities where people understand that CSA can and does happen, people aremore likely to recognise risk and respond appropriately to prevent abuse fromhappening in the first place.7

Objective 2: Increased awareness in children of the importance of safe, equaland healthy relationships and that abusive behaviour is always wrong.ActionOwnerDelivery periodA3. Issue Relationships and SexualityEducation in Schools GuidanceA4. Develop poster campaign on unsafeand unhealthy relationships for childrenand parent/carersA5. Promote information to children andparent/carers on healthy/unhealthyrelationships.A6. Develop a clear referral pathway forchildren who display inappropriatesexualised behaviour to receive an earlyhelp assessment as recommended inNICE guidance 2016.2Welsh GovernmentPeriod 2Welsh GovernmentPeriod 2Safeguarding Boardpartners.Period 2Safeguarding Boardpartners.Period 2Period 3Evidencing the implementation of actions:ReportingA3. Welsh Government evidence on implementation ofRelationships and Sexuality Education in Schools.A4. Welsh Government poster campaign has been launched.A5. Safeguarding Children Boards report activity that has takenplace to promote information to children and parent/carers onhealthy/unhealthy relationships.A6. Safeguarding Children Boards report that local and/or regionalreferral pathways for children who display inappropriate sexualisedbehaviour are in place.End of Period 3End of Period 2End of Period 2End of Period 3Understanding how relationships are formed, developed and maintained enables usto develop the skills and attitudes that allow us to create healthy relationships of ourown. It supports children to develop the knowledge and skills needed to effectivelynavigate these rapidly changing influences and establish respectful, fulfillingrelationships throughout their lives. These may include family relationships,friendships, professional relationships and sexual relationships. It can also helpchildren to recognise when things are happening in their relationships with othersthat are not healthy or appropriate.SchoolBeat.Org is a bilingual site from the All Wales School Liaison CoreProgramme, providing information and resources for pupils, teachers, parents andpartners to reinforce the key messages delivered by our School Community PoliceOfficers in primary and secondary schools as well as alternative educationalsettings.The site also has information about the themed lessons that the All WalesSchool Liaison Core Programme offers including for example ‘Griff’s Story’, a Year 6lesson designed to educate pupils about the issue of Child Sexual Abuse andExploitation. ‘Risky Pics’ is a secondary school lesson about the social andemotional consequences of sexting and discover what the law says. The siteincludes resources on healthy relationships.Information on unsafe relationships for parentsInformation for primary school children8

Information for secondary school childrenSexually problematic behaviour in children must be considered on a continuum ofbehaviour ranging from normal, through harmful and in a small number of casesabusive. Our responses to children with sexually problematic behaviour must includeearly support to prevent harm to them and to other children. Intervening early so thatchildren understand when why their behaviour is considered inappropriate so thatany underlying issues can be identified will protect them from further harm andprevent the abuse of other children.Objective 3: Increased awareness of how help to keep children safe from CSAfor parent/carers, practitioners and the public.ActionOwnerDelivery periodA7. Develop resources to supportparents/carers from BAME communities,parent/carers with disabled children andparent/carers with LGBT children andpractitioners to understand CSA andhow they can help to keep children safe.A8. Promote resources to supportparents/carers from BAME communities,parent/carers with disabled children andparent/carers with LGBT children andpractitioners to understand CSA in thecontext of equality and diversity issuesand how they can help to keep theirchildren safe through an awarenessraising campaign and learning sessions.A9. Develop and consult on a voluntarysafeguarding code of practice for out-ofschool settings and accompanyingguidance for parents.Welsh GovernmentPeriod 2Welsh GovernmentPeriod 3Welsh GovernmentPeriod 2Period 3A10. Develop non-statutory practiceguidance to support those working ineducation settings, in managing casesof peer-on-peer abuse within theeducation settings The guidance willprovide advice on ensuring that wherethere are concerns around HSB childrencan continue to receive an education inway which is safe for them and for otherlearners.A11. Develop information resources forpractitioners and for parent/carers onCSE and HSB.A12. Promote information and resourceson CSA, CSE, HSB and Online abuse topractitioners working with children andtheir families including information thatpractitioners can share with children andtheir families.Welsh GovernmentPeriod 2Welsh GovernmentPeriod 2Safeguarding Boardpartners.Period 2Period 39

A13. Support practitioner learning onCSA, CSE, HSB and Online Abuseincluding awareness of relevantguidance, procedures and practiceguides. This should include promoting anunderstanding of CSA in the context ofequality and diversity issues such asgender, ethnicity, sexuality and disability.Safeguarding Boardpartners.Period 2Period 3Evidencing the implementation of actions:A7. Resources to support parents/carers from BAME communities,parent/carers with disabled children and parent/carers with LGBT children and practitioners to understand CSA are available.A8. Resources to support parents/carers from BAME communities,parent/carers with disabled children and parent/carers with LGBT children and practitioners to understand CSA have been promotedthrough an awareness raising campaign and learning sessions.ReportingEnd of Period 2End of Period 3A9. A voluntary safeguarding code of practice for out-of-schoolsettings and accompanying guidance for parents is issued.End of Period 3A10. Non-statutory practice guidance on managing peer-on-peerabuse in education settings is available and promoted.A11. Information resources for parent/carers and practitioners onCSE and HSB are available to Safeguarding Board partners.A12. Safeguarding Children Boards evidence that practitionersworking with children and families are aware of information andresources on CSA, CSE, HSB and Online Abuse and are sharingthis information appropriately with children and families.A13. Safeguarding Children Boards evidence opportunities and takeup of practitioner learning on CSA, CSE, HSB and Online Abuse.End of Period 2End of Period 2End of Period 3End of Period 2End of Period 3Practitioners who come into contact with children and their families should seek toroutinely share information with parent/carers about available resources and theneed to be aware of the ways in which they can help to keep the children in theircare safe from CSA. This should include an understanding of the impact that noncontact online CSA can have on children.Practitioner learning can be supported in a number of ways, through thedissemination of information and resources; through online learning and throughdirect awareness raising and training. Good practice can be promoted through theinclusion of safeguarding as a standing item at team meetings and throughsupervision. This can assist agencies to identify practitioner learning needs.In 2018 the Welsh Government funded Stop it Now! Wales to develop and deliver acampaign aimed at tackling child sexual abuse by enabling the public to play a moreactive part in preventing the sexual abuse of children. The ‘Child Sexual Abuse What we all need to know’ campaign communicated key advice and information tothe public through an awareness raising campaign involving traditional media, socialmedia, resources. Simultaneously, learning sessions for parents/carers andpractitioners who work with children and families were delivered across each of the10

six Safeguarding Children Board regions. Age appropriate resources are alsoavailable for the early years, for example the NSPCC Let's Talk Pants materials.Parent/carers need to be aware of the ways in which they can check whether theadults that they allow to have contact with their children are safe or might pose a riskto their children.The Home Office has produced information on the Child Sex Offender DisclosureScheme which includes information for parents and for practitioners andcommunication materials to promote this information.The NSPCC Child Protection in Sport Unit (CPSU) has produced a Keeping ChildrenSafe in Sports - A Parent's Charter which provides advice on how parents can checkthat their child is attending a sporting activity which has safeguarding measures inplace.The Wales Safeguarding Procedures when published will be accompanied by anumber of All Wales Practice Guides. This will include All Wales Practice Guides onCSE, HSB and Online Abuse. The Welsh Government will also be consulting on newguidance on CSE, Working Together to safeguard People: Volume 7- Safeguardingchildren from Child Sexual Exploitation. Practitioners should be familiar with this newguidance and with the All Wales Practice Guides once issued. Practitioners shouldalso be familiar with the Stop it Now resources.There is evidence3 that practitioner knowledge and understanding of CSA in relationto children from Black, Asian and Minority Ethnic (BAME) communities, disabledchildren and Lesbian, Gay, Bisexual, Transsexual (LGBTQ )children where thereare further barriers to identification may be more limited. The Welsh Governmentintends to commission resources and learning events to improve understanding forpractitioners and for parent/carers.When there is an incident of peer-on-peer abuse in a school or other educationsetting, or when there are concerns about a learner in relation to HSB, all thoseworking in the education setting should be supported in managing cases effectively.Each case should be planned for and managed to ensure that all leaners are safeand that the education opportunities for children with HSB and other learners are notadversely affected. The Welsh Government will develop guidance on managingpeer-on-peer abuse and HSB in education settings.The Welsh Government intends to develop and consult on a voluntary safeguardingcode of practice for out-of-school settings and accompanying advice for parents.This will set out safeguarding expectations for out-of-school settings and informationfor parents will assist them to select activities for their children in out-of-schoolsettings where there are safeguarding measures in place.11

Objective 4: Increased awareness of how corporate safeguarding cancontribute to the prevention of CSA.ActionOwnerDelivery periodA14. Develop an exemplar corporatesafeguarding policy in partnership withthe Welsh Local GovernmentAssociation (WLGA) for considerationby Safeguarding Board Partners.Welsh GovernmentPeriod 2A15. Consider adoption of exemplarcorporate safeguarding policy.Safeguarding Boardpartners.Period 3A16. Consider learning from theContextual Safeguarding Network onneighbourhoods and consider a regionalpilot site for the NeighbourhoodAssessment toolkit.Safeguarding Boardpartners.Period 2Period 3Evidencing the implementation of actions:A14. Exemplar corporate safeguarding policy is available.ReportingEnd of Period 2A15. Safeguarding Children Board report that the exemplarcorporate safeguarding policy has been disseminated to partners forconsideration and partners have reviewed their existing corporatesafeguarding policy against the exemplar policy.End of Period 3A16. Safeguarding Children Board report that learning from theContextual Safeguarding Network on neighbourhoods has beendisseminated to partners and report whether there has been or willbe a regional pilot site for the Neighbourhood Assessment.End of Period 3A review of local authority corporate safeguarding arrangements undertaken by theWales Audit Office and published in 2015 made recommendations around a numberof areas for improvement. Corporate safeguarding has a core role in ensuring thatadequate measures are in place to keep children safe. Corporate safeguarding canalso play a role in ensuring that procurement and licencing arrangements promotesafeguarding. There is already some good practice in place in terms of trainingrequirements on licensed taxi drivers for example but this is not consistent acrossWales. More could also be done in terms of safeguarding due diligence checks onindividuals or organisations applying to rent corporate premises for activitiesinvolving children.Corporate safeguarding is also important in preventing institutional child sexualabuse and evidence on this is included in Key messages from research - institutionalchild sexual abuse, 2018 published by the Centre for Expertise on CSA. Rigorousrecruitment and selection processes, and the need for organisations to build an openculture where safeguarding is seen as everyone’s business, ensures that childrenhave safe spaces and positive relationships with several members of staff, andorganisational processes should be in place (such as co-working, supervision andwhistleblowing procedures) to minimise the opportunities for abuse to occur.12

The Welsh Government will work with the WLGA to develop an exemplar CorporateSafeguarding Policy to inform improvements and consistency in local and regionalarrangements.Neighbourhoods have been identified as sites in which young people can experienceand/or be safeguarded from abuse and violence. From experiences of child sexualexploitation in fast food restaurants, criminal exploitation in parks, serious youthviolence on transport routes to exposure to drug use and dealing in vulnerableadult’s homes. While agencies already work to keep young people safe outside ofthe home, such as neighbourhood safety and the police, the primary focus of thiswork is crime prevention as opposed to child well-being and safeguarding. Researchsuggests that there are a number of ways that young people can be safeguardedfrom harm in neighbourhood spaces – from ‘designing-out’ opportunities for abuse tooccur and creating opportunities for community guardians. The ContextualSafeguarding Network , University of Bedfordshire offers an online NeighborhoodAssessment Toolkit which will assist partners in considering relevant issues tosupport safer communities.13

Arrangements for the Protection of children at risk of Child SexualAbuse (CSA)One of the difficulties in estimating the prevalence of CSA is that so much sexualabuse remains unidentified. Disclosure by children is rare, so professionals andother responsible adults need to be able to spot the signs of possible abuse and takeappropriate action. The reasons children keep silent include fear of their abuser, notwanting their abuser to get into trouble, feeling that the abuse was ‘their fault’, andfeeling responsible for what will happen to their family if they tell. Supporting a betterunderstanding of CSA for children, non-abusing parent/carers and practitioners willsupport increased identification and disclosure so that children can be protected atthe earliest opportunity.Objective 5: Increased awareness in children of safe ways to disclose sexual abuseor risk of sexual abuse and of what should happen when they tell.ActionOwnerDelivery periodA17. Promote resources for schools withinformation for children on safe ways tospeak out about abuse.Welsh GovernmentPeriod 1A18. Promote resources with informationfor children on safe ways to speak outabout abuse.Safeguarding Boardpartners.Period 1Period 2Period 3A19. Develop resources for children onwhat will happen if they tell an adult theyare being abused.Welsh GovernmentPeriod 1Period 2A20. Promote resources for children onwhat will happen if they tell an adult theyare being abused.Safeguarding Boardpartners.Period 2Period 3Evidencing the implementation of actions:A17. Welsh Government report promotion activity.A18. Safeguarding Children Boards report evidence on promotion ofresources for children on safe ways to speak out about abuse.A19. Resources for children on what will happen if they tell an adultthey are being abused are available.A20. Safeguarding Children Boards report evidence on promotion ofresources for children on what will happen if they tell an adult theyare being abused.ReportingEnd of Period 1End of Period 1End of Period 2End of Period 3End of Period 2End of Period 3The 2015 to 2016 Crime Survey for England and Wales ran for the first time amodule of questions asking adults whether they were abused as a child. 4 Survivorswho reported childhood sexual assault by rape or penetration (including attempts)were asked whether they told anyone about what was happening to them at the timeof the abuse. Just under three-quarters (74%) of survivors did not tell anyone about14

the abuse at the time the abuse occurred. However, those aged less than 45 at thetime of interview were significantly more likely to have told someone at the time theabuse occurred than those aged 45 to 59. This gives some indication that disclosurerates have increased over time. Only 1 in 10 (10%) of all survivors of childhoodsexual assault by rape or penetration (including attempts) told someone in an officialposition about the abuse at the time, with 7% reporting the abuse to the police.Much abuse in the family remains undisclosed. Children may fear their abuser, notwant their abuser to get into trouble, feel that the abuse was ‘their fault’, and feelresponsible for what will happen to their family if they tell. Disabled children, LGBT children and some Black, Asian and Minority Ethnic (BAME) children face additionalbarriers. In some communities cultural beliefs around ‘honour’ will impact on the wayin which family members and the wider community respond to a child who is sexuallyabused which can act to silence the child and supportive family members. Abuse bya family member may be particularly traumatic because it involves high levels ofbetrayal, stigma and secrecy. The Centre for Expertise on CSA has published KeyMessages from research on intra-familial child sexual abuse, 2018.The term ‘institutional child sexual abuse’ is used to distinguish CSA in aninstitutional context from that occurring in the family or other settings. It can takeplace in a wide variety of settings where individuals are in a position of power andtrust in relation to children. Institutional CSA may be perpetrated by a singleindividual on a single victim, but those who commit abuse in an institutional settingfrequently have multiple victims. Institutional CSA can also involve several peoplecommitting abuse within the same institution, and includes abuse by peers in thecontext of an organisational culture of abuse. Many cases of non-recen

The Plan should be read in conjunction with the Welsh Government National Strategy on Violence against Woman, Domestic Abuse and Sexual Violence Cross Government Delivery Framework 2018-2021 and An online safety action plan for children and young people in Wales (2018) This Plan sets out th

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