Legal Framework For Carbon Markets And Carbon Trading In India
- Lawcurb
- Dec 8
- 17 min read
Abstract
The global imperative to combat climate change has positioned carbon markets as a central instrument in the decarbonization strategies of nations worldwide. For India, a rapidly growing economy with ambitious climate goals, establishing a robust and functional domestic carbon market is a strategic necessity. This article provides a detailed examination of the evolving legal and policy framework for carbon markets and carbon trading in India. It begins by tracing the historical trajectory, from India's active participation in the Kyoto Protocol's Clean Development Mechanism (CDM) to its current, domestically-driven approach under the Paris Agreement. The analysis then delves into the cornerstone of this new framework: the Energy Conservation (Amendment) Act, 2022, which empowers the central government to mandate the use of carbon trading systems for specific sectors and consumers. The article explicates the proposed two-pronged structure of the Indian carbon market, comprising a compliance-driven Carbon Credit Trading Scheme (CCTS) and a voluntary market for additional projects. Key institutional roles, including those of the Bureau of Energy Efficiency (BEE) as the regulator and the Grid Controller of India Limited (Grid-India) as the registry administrator, are scrutinized. Furthermore, the article explores the intricate linkages between the carbon market and India's overarching climate policies, such as its Nationally Determined Contributions (NDCs), and flagship initiatives like the Perform, Achieve and Trade (PAT) scheme. The analysis also addresses the significant legal, methodological, and operational challenges that lie ahead, including ensuring environmental integrity, preventing double counting, defining carbon credit ownership, and establishing a transparent market architecture. By evaluating the current state of development, this article concludes that while India has laid a formidable legislative foundation, the ultimate success of its carbon market will hinge on the meticulous design of subsequent regulations, the building of robust institutional capacity, and the fostering of market liquidity and trust, thereby positioning India as a pivotal player in the global fight against climate change.
Introduction
Climate change represents one of the most profound challenges of the 21st century, demanding a concerted global response. As the world's third-largest emitter of greenhouse gases (GHGs) and a nation highly vulnerable to climate impacts, India faces a dual challenge: to sustain its economic development and lift millions out of poverty while simultaneously transitioning to a low-carbon economy. In this complex endeavour, market-based mechanisms have emerged as critical tools to achieve emission reductions in a cost-effective manner. Carbon markets, by putting a price on carbon, create a financial incentive for entities to reduce their emissions and reward those who do so beyond their obligations.
India is no stranger to carbon trading. Its journey began under the international Kyoto Protocol through the Clean Development Mechanism (CDM), where it became the world's second-largest host for CDM projects, channeling significant investment and technology for emission reduction activities. However, the transition from the Kyoto Protocol to the Paris Agreement marked a paradigm shift. The Paris Agreement, with its bottom-up approach centered on Nationally Determined Contributions (NDCs), necessitated the creation of domestic policy architectures to meet national climate goals.
Recognizing this, the Government of India has embarked on a ambitious path to establish a comprehensive domestic carbon market. This initiative is not merely an environmental policy but a core component of India's strategic energy and economic planning. The legal framework for this market is being meticulously constructed, with the Energy Conservation (Amendment) Act, 2022, serving as its foundational pillar. This framework aims to leverage the power of markets to help India achieve its updated NDC targets, which include reducing the emissions intensity of its GDP by 45 percent from 2005 levels by 2030 and achieving 50 percent cumulative electric power installed capacity from non-fossil fuel-based energy resources by 2030.
This article provides a comprehensive analysis of the legal framework for carbon markets and carbon trading in India. It will trace the historical context, dissect the current legislative and policy architecture, detail the proposed market structure and key institutions, and critically examine the challenges and future directions. The objective is to offer a holistic understanding of how India is building a legal ecosystem to catalyze its transition towards a sustainable and climate-resilient future through the instrument of carbon pricing.
Part 1: Historical Context and Evolution
India's engagement with carbon markets can be divided into two distinct phases: the international phase under the Kyoto Protocol and the nascent domestic phase under the Paris Agreement.
1.1 The Kyoto Protocol and the Clean Development Mechanism (CDM) Era
The United Nations Framework Convention on Climate Change (UNFCCC) and its Kyoto Protocol established the first international framework for carbon trading. The Kyoto Protocol operationalized three market-based mechanisms: International Emissions Trading, Joint Implementation, and notably for developing countries like India, the Clean Development Mechanism (CDM).
The CDM allowed Annex I (developed) countries with emission reduction targets to invest in projects that reduced emissions in non-Annex I (developing) countries, such as India, and earn Certified Emission Reduction (CER) credits in return. These CERs could be used by the developed country to meet a part of its Kyoto targets. For India, this mechanism presented a significant opportunity. It attracted foreign investment, facilitated the transfer of environmentally sound technologies, and promoted sustainable development.
India emerged as a global leader in the CDM arena. The National CDM Authority (NCDMA), established under the Ministry of Environment, Forest and Climate Change (MoEFCC), was set up to evaluate and approve CDM projects. By the early 2010s, India had registered over 1,600 projects, second only to China, in sectors ranging from renewable energy and energy efficiency to waste management and industrial processes. Projects like wind farms, biomass power, and cogeneration units flourished under the CDM, demonstrating the potential of carbon finance to drive climate action.
However, the CDM market faced severe challenges. A massive oversupply of CERs, coupled with dwindling demand from developed nations following the Kyoto Protocol's first commitment period and the lack of ambition in subsequent negotiations, led to a collapse in CER prices. This price crash rendered many projects unviable and exposed the vulnerabilities of a market dependent on international demand and political will.
1.2 The Paradigm Shift: From Kyoto to Paris
The Paris Agreement of 2015 marked a fundamental shift in the global climate regime. It moved away from a top-down, Annex-based system to a bottom-up structure where all countries put forward their own NDCs. Article 6 of the Paris Agreement provides the framework for international cooperation, including voluntary market mechanisms. Crucially, it introduced concepts like Internationally Transferred Mitigation Outcomes (ITMOs) and a mechanism to contribute to the mitigation of GHG emissions and support sustainable development, often referred to as "Article 6.4" (the successor to the CDM).
This shift necessitated a corresponding change in national approaches. India could no longer rely on an international system to drive its carbon finance. Instead, it had to create a domestic architecture aligned with its own NDCs. The experience with the CDM, while valuable, highlighted the need for a more resilient, self-sustaining market with domestic demand. This realization catalyzed the Indian government's efforts to build a home-grown carbon market, leading to the pivotal legislative amendments and policy formulations we see today.
Part 2: The Foundational Legislation: Energy Conservation (Amendment) Act, 2022
The cornerstone of India's formal carbon market framework is the Energy Conservation (Amendment) Act, 2022. This Act amended the original Energy Conservation Act, 2001, which was primarily designed to promote energy efficiency through standards and labels, and the Perform, Achieve and Trade (PAT) scheme. The 2022 amendments significantly expanded the scope of the Act to explicitly include carbon emissions and trading.
2.1 Key Amendments and Provisions
The Amendment Act introduced several critical provisions to empower the central government to establish carbon markets:
» Expanded Scope and Definition: The Act broadened the scope of the original legislation beyond energy conservation to include "carbon credit trading." It introduced a new definition for "carbon credit" as a value representing one tonne of carbon dioxide equivalent, which is issued by the central government or any authorized agency and is tradable. This legal definition is fundamental as it creates the basic unit of the market.
» Empowerment of the Central Government: The Act empowers the central government, in consultation with the Bureau of Energy Efficiency (BEE), to:
• Specify a "carbon credit trading scheme" (CCTS).
• Issue carbon credit certificates to entities that comply with the emission reduction targets.
• Specify the minimum share of consumption of non-fossil sources (energy) by designated consumers (energy intensive industries, commercial buildings, etc.).
» Empowerment of State Governments: The amendments also authorize state governments to make rules for the enforcement of the Act, including the CCTS, thereby creating a role for State Designated Agencies (SDAs) in the implementation framework.
» Enhanced Penalties: The Act increases the penalties for non-compliance, signaling a stricter enforcement regime. This is crucial for maintaining the integrity and credibility of a compliance market.
2.2 Significance of the Amendment
The Energy Conservation (Amendment) Act, 2022, is a landmark piece of legislation for several reasons:
» Legal Backing: It provides the necessary statutory backing for a mandatory carbon market in India, moving beyond voluntary initiatives.
» Institutional Clarity: It reinforces the role of the Bureau of Energy Efficiency (BEE) as the key regulatory body for the compliance carbon market, building on its existing expertise from administering the PAT scheme.
» Policy Integration: It seamlessly integrates carbon trading with existing energy conservation policies, creating a synergistic approach where energy efficiency directly translates into carbon credits, thereby enhancing the value proposition for industries.
» Future-Proofing: The broad enabling nature of the Act allows the government to design and adapt the carbon market's rules and coverage over time without requiring further parliamentary approval.
Part 3: The Proposed Structure of the Indian Carbon Market
Based on the legislative mandate and subsequent government notifications, the Indian carbon market is envisioned as a two-tiered structure: a compliance market and a voluntary market.
3.1 The Compliance Market: The Carbon Credit Trading Scheme (CCTS)
The CCTS is the core of the mandatory carbon market. It will operate as a cap-and-trade system for specific high-emitting sectors.
» Covered Sectors and Entities: The scheme will initially target "designated consumers" from energy-intensive sectors such as aluminum, fertilizer, iron and steel, cement, and thermal power plants, among others. These entities are already identified under the PAT scheme, providing a ready-made list of participants.
» The "Cap": The central government, based on expert advice, will set a national cap on GHG emissions for the covered sectors. This cap will be progressively tightened over time to align with India's NDC targets. The cap will be translated into individual emission reduction targets or benchmarks for each designated entity.
» Carbon Credit Certificates (CCCs): Entities that reduce their emissions below their assigned target will be awarded tradeable Carbon Credit Certificates (CCCs). Each CCC will represent one tonne of CO2 equivalent (tCO2e) avoided.
» Obligated Entities: Entities that emit above their target are obligated to surrender a sufficient number of CCCs to cover their excess emissions.
» Trading Platform: The CCCs will be traded on designated power exchanges (like Indian Energy Exchange and Power Exchange of India Limited) to ensure transparency, price discovery, and liquidity.
3.2 The Voluntary Carbon Market
Parallel to the compliance market, a voluntary carbon market will continue to exist and is expected to be streamlined. This market caters to corporations, institutions, and even individuals who wish to offset their carbon footprint voluntarily for Corporate Social Responsibility (CSR), Environmental, Social, and Governance (ESG) reporting, or carbon neutrality claims.
» Projects: This market will include projects that are not covered under the CCTS or that generate credits beyond the compliance requirements. This could include nature-based solutions like afforestation and reforestation, sustainable agriculture, community-based projects, and advanced technological carbon removal projects.
» Standardization: To ensure credibility and prevent greenwashing, the government is expected to define standards and protocols for the generation, verification, and registration of voluntary carbon credits. This will bring much-needed uniformity to a currently fragmented market dominated by private international standards.
3.3 The Distinction and Potential Linkage
A critical design element is the relationship between the compliance and voluntary markets. Initially, they are likely to be separate to maintain the integrity of the compliance system. Allowing cheap voluntary credits to flood the compliance market could undermine the emission reduction targets. However, the government may create provisions for a limited linkage in the future, where specific types of high-integrity voluntary credits could be converted into CCCs under strict conditions, thereby expanding the supply options for obligated entities.
Part 4: Key Institutions and Their Roles
The successful operation of a carbon market depends on a robust institutional framework. The Indian model assigns specific roles to various bodies.
4.1 Bureau of Energy Efficiency (BEE)
The BEE, a statutory body under the Ministry of Power, is designated as the Administrator of the CCTS. Its roles include:
» Scheme Formulation: Developing the detailed rules, procedures, and methodologies for the CCTS in consultation with the government.
» Target Setting: Recommending emission reduction targets and benchmarks for designated consumers.
» Issuance and Cancellation: Issuing Carbon Credit Certificates to compliant entities and canceling them upon surrender.
» Monitoring and Verification: Overseeing the process of monitoring, reporting, and verification (MRV) of emissions data to ensure accuracy and prevent fraud.
» Compliance and Enforcement: Tracking compliance and recommending penalties for non-compliance.
4.2 Grid Controller of India Limited (Grid-India)
Grid-India has been appointed as the Registry Administrator. The registry is a crucial IT platform that acts as the single source of truth for the market. Grid-India's responsibilities include:
» Maintaining Accounts: Operating and maintaining the electronic registry that will track the issuance, holding, transfer, acquisition, surrender, and cancellation of CCCs.
» Transaction Logging: Recording all transactions to ensure transparency and prevent double counting.
» Settlement: Facilitating the settlement of trades executed on the power exchanges.
4.3 Power Exchanges
Power exchanges, such as the Indian Energy Exchange (IEX) and Power Exchange India Limited (PXIL), will serve as the market platforms for trading CCCs. They will provide a transparent, automated, and anonymous trading environment, facilitating price discovery and liquidity.
4.4 Ministry of Environment, Forest and Climate Change (MoEFCC)
While BEE is the regulator for the CCTS, the MoEFCC remains the nodal ministry for climate change policy in India. It is responsible for:
• Formulating India's NDCs and broader climate policy.
• Overseeing international engagements under the UNFCCC and Article 6 of the Paris Agreement.
• Regulating the voluntary carbon market, potentially through a separate framework.
4.5 Accredited Verification Agencies
A network of independent, third-party auditors will be accredited to verify the emission reports submitted by the designated consumers. The integrity of the entire market hinges on the accuracy and reliability of these verifications.
Part 5: Linkages with Existing and Proposed Policies
The Indian carbon market does not exist in a vacuum; it is deeply intertwined with other national policies.
5.1 Perform, Achieve and Trade (PAT) Scheme
The PAT scheme, operational since 2012, is a flagship energy efficiency program that is a direct precursor to the CCTS. It is a sector-specific, cap-and-trade system based on energy consumption (Specific Energy Consumption - SEC) rather than carbon emissions. Entities that overachieve their SEC targets receive Energy Saving Certificates (ESCerts), which they can trade. The PAT scheme has successfully demonstrated the viability of a compliance trading mechanism in India. The CCTS will build upon the institutional knowledge, MRV processes, and participant base of the PAT scheme, effectively evolving it from an energy-saving to an emission-reduction program.
5.2 Nationally Determined Contributions (NDCs)
The carbon market is a key implementation vehicle for achieving India's NDCs. By putting a price on carbon, it creates a continuous economic incentive for industries to innovate and decarbonize, thereby helping the nation meet its goal of reducing the emissions intensity of its GDP. The revenue generated from the sale of credits can be reinvested in green technologies, further accelerating the transition.
5.3 Renewable Purchase Obligations (RPOs) and Renewable Energy Certificates (RECs)
RPOs mandate obligated entities (mainly electricity distribution companies and large consumers) to source a certain percentage of their power from renewable sources. RECs are tradeable instruments that represent the environmental attributes of renewable electricity and are used to meet RPOs. While RPOs/RECs focus on the power generation side, the CCTS focuses on the consumption side (industrial emissions). There is a potential for interaction, and the frameworks will need to be harmonized to avoid double counting of emission reductions.
Part 6: Critical Challenges and the Way Forward
While the legislative foundation is strong, the successful implementation of the Indian carbon market faces several significant challenges.
6.1 Ensuring Environmental Integrity (Avoiding Greenwashing)
The primary purpose of a carbon market is to drive real, additional, and permanent emission reductions. A major challenge is to ensure that the credits generated represent genuine mitigation actions that would not have occurred without the incentive of the carbon market (the "additionality" criterion). Robust methodologies and stringent MRV protocols are essential to maintain the market's credibility.
6.2 Preventing Double Counting
Double counting occurs when a single emission reduction is claimed more than once. This can happen in several ways:
» Within India: If a reduction from a renewable energy project is used by the project developer to claim a carbon credit and is also used by a discom to meet its RPO, it amounts to double counting.
» Internationally (Article 6): Under the Paris Agreement, if India transfers a carbon credit to another country (as an ITMO), it must correspondingly adjust its own national emissions inventory to ensure the reduction is not counted twice. Developing a robust national registry that can track such adjustments is technically and administratively complex.
6.3 Legal Certainty and Ownership of Credits
The legal framework must clearly define the ownership of carbon credits, especially in complex scenarios. For instance, in a group of companies or in projects involving multiple stakeholders, who owns the credit—the project developer, the technology provider, or the investor? Ambiguity in ownership can lead to legal disputes and hamper market participation.
6.4 Market Liquidity and Price Stability
A thin market with low trading volumes can lead to high price volatility, which deters long-term investments in low-carbon technologies. Ensuring a sufficient number of participants, a balanced supply and demand of credits, and allowing the participation of financial intermediaries (within regulated limits) can enhance liquidity and price stability.
6.5 Capacity Building and Awareness
Many of the designated consumers, particularly smaller enterprises, may lack the technical and managerial capacity to participate effectively in the carbon market. A massive nationwide exercise in capacity building for industries, verifiers, and even the regulatory bodies themselves is crucial.
6.6 Social and Distributional Equity
The design of the carbon market must consider its social impact. A carbon price can lead to increased costs for energy-intensive industries, which may be passed on to consumers. The government must consider mechanisms to use a portion of the revenue from the market (e.g., from auctioning a small percentage of allowances) to support vulnerable communities or to fund a just transition for workers in fossil-fuel-dependent sectors.
Conclusion
India's journey to establish a domestic carbon market is a testament to its serious commitment to global climate action and its strategic vision for a sustainable economic future. The enactment of the Energy Conservation (Amendment) Act, 2022, has provided the indispensable legal bedrock upon which this complex edifice is being constructed. The proposed two-tiered structure, comprising a compliance-driven Carbon Credit Trading Scheme and a streamlined voluntary market, reflects a nuanced understanding of the need for both regulatory mandate and voluntary ambition.
The framework wisely leverages existing institutional strength, particularly the Bureau of Energy Efficiency and the learnings from the PAT scheme, ensuring a degree of continuity and experiential learning. The clear allocation of roles to institutions like Grid-India for registry management and power exchanges for trading platforms demonstrates a well-thought-out operational plan.
However, the passage of the law is merely the beginning. The true test lies in the meticulous detailing of the subsequent regulations—the Carbon Credit Trading Scheme itself. The challenges of ensuring environmental integrity, preventing double counting, defining legal ownership, and fostering a liquid and stable market are formidable. Addressing these will require continuous dialogue with stakeholders, technical expertise, and adaptive governance.
The successful implementation of India's carbon market has implications that extend far beyond its borders. As one of the world's largest economies and emitters, a functional and high-integrity carbon market in India can serve as a model for other developing nations. It can position India as a leader in climate finance and low-carbon innovation. More importantly, it can be a powerful engine to propel the nation towards its ambitious net-zero by 2070 goal, ensuring that its economic growth story is both inclusive and environmentally sustainable. The legal framework is now in place; the next chapter of building a vibrant and credible market has just begun.
Here are some questions and answers on the topic:
1. What was the primary limitation of the Clean Development Mechanism (CDM) for India, and how does the new domestic carbon market framework under the Energy Conservation (Amendment) Act, 2022, address this?
India's experience with the Clean Development Mechanism (CDM) under the Kyoto Protocol, while initially beneficial, was fundamentally limited by its dependence on international demand and price volatility. The CDM was an external market where developed countries purchased carbon credits from projects in developing nations like India to meet their international targets. This structure made the Indian carbon finance sector highly vulnerable to global political will and market dynamics. The collapse of international carbon prices after the first commitment period of the Kyoto Protocol rendered many Indian CDM projects financially unviable, exposing the inherent risk of a system driven by foreign demand. The new domestic framework established by the Energy Conservation (Amendment) Act, 2022, directly addresses this vulnerability by creating an internal, compliance-driven market. The Act empowers the Indian government to mandate emission reduction targets for its own high-emitting domestic industries, thereby generating guaranteed domestic demand for carbon credits. This shift moves India from a passive supplier in an international market to an active regulator of its own carbon economy, aligning carbon trading directly with its national climate goals, known as Nationally Determined Contributions (NDCs), and insulating it from the fluctuations of the international carbon market.
2. Explain the two-tiered market structure proposed under India's carbon market framework and the key distinction between them.
The proposed Indian carbon market is designed with a two-tiered structure consisting of a compliance market and a voluntary market, each serving a distinct purpose and operating under different rules. The compliance market, formally known as the Carbon Credit Trading Scheme (CCTS), is the core regulated system. It functions as a cap-and-trade mechanism where the government sets a cap on emissions for specific energy-intensive sectors, and designated entities within those sectors are legally obligated to reduce their emissions. Those who reduce emissions beyond their target receive Carbon Credit Certificates, which they can trade, while those who exceed their limits must purchase these certificates to comply with the law. In contrast, the voluntary market operates outside this compliance mandate. It caters to corporations, institutions, and individuals who wish to offset their carbon footprint for reasons such as corporate social responsibility, environmental branding, or meeting voluntary Environmental, Social, and Governance (ESG) standards. The key distinction lies in the nature of obligation; participation in the CCTS is mandatory for covered entities, driven by legal penalty, while the voluntary market is, as the name suggests, driven by corporate conscience and market incentives, and involves projects that are either not covered by the CCTS or generate extra credits.
3. How does the role of the Bureau of Energy Efficiency (BEE) differ from that of Grid-India within the institutional framework of the Carbon Credit Trading Scheme (CCTS)?
Within the institutional architecture of the Carbon Credit Trading Scheme, the Bureau of Energy Efficiency (BEE) and Grid-India are assigned distinct and complementary roles to ensure the market's smooth operation and integrity. The BEE acts as the regulatory administrator of the entire scheme. Its responsibilities are strategic and oversight-oriented, including formulating the detailed rules and methodologies for the CCTS, setting emission reduction targets and benchmarks for designated consumers, accrediting third-party verification agencies, issuing Carbon Credit Certificates to compliant entities, and ultimately monitoring compliance and enforcing penalties for non-compliance. In essence, the BEE is the rule-maker and referee of the market. On the other hand, Grid-India serves as the technical backbone, appointed as the Registry Administrator. Its role is operational and focused on data integrity. It is responsible for maintaining the secure electronic registry that acts as the single source of truth, tracking every single Carbon Credit Certificate from its issuance and ownership transfer to its final surrender or cancellation. While the BEE governs the why and how of the market, Grid-India manages the what and where, ensuring that all transactions are recorded transparently and accurately to prevent fraud and double-counting.
4. What is the critical challenge of "double counting" in carbon markets, and how might it manifest in the Indian context?
The critical challenge of double counting in carbon markets refers to the situation where a single emission reduction is claimed more than once, which undermines the environmental integrity of the entire system by overstating the actual mitigation achieved. This can manifest in two primary ways within the Indian context. Firstly, it can occur domestically through what is known as "double claiming." For example, if a company builds a solar power plant, the emission reductions from that project could potentially be claimed by the plant owner to generate a carbon credit and simultaneously be claimed by a electricity distribution company (discom) to meet its Renewable Purchase Obligation (RPO), thus counting the same tonne of CO2 reduced twice towards different policy goals. Secondly, and more complexly, double counting can occur at the international level under the Paris Agreement's Article 6. If India authorizes the transfer of a carbon credit, known as an Internationally Transferred Mitigation Outcome (ITMO), to another country like Japan or Switzerland, that tonne of reduction will be counted by the purchasing country towards its NDC. To prevent double counting, India must then make a "corresponding adjustment" in its own national greenhouse gas inventory, essentially adding that tonne back to its accounts to ensure it is not also counted towards its own NDC. Establishing a robust national registry and clear accounting rules is paramount to navigating this complex challenge.
5. Beyond simply creating a trading platform, how is the Indian carbon market framework intended to function as a strategic policy tool to achieve national goals?
The Indian carbon market framework is conceived not merely as a financial trading platform but as a multifaceted strategic policy tool designed to catalyze the achievement of core national goals, primarily its climate and economic objectives. Its primary function is to serve as a key implementation vehicle for India's Nationally Determined Contributions (NDCs) under the Paris Agreement. By putting a tangible price on carbon emissions, the framework creates a continuous and direct economic incentive for industries to innovate, invest in energy efficiency, and transition to cleaner technologies, thereby systematically driving down the emissions intensity of the economy. Furthermore, it is a tool for resource mobilization and channeling green finance. The revenue generated from the sale of carbon credits provides companies with the capital needed to reinvest in further decarbonization projects, creating a virtuous cycle of investment and emission reductions. The framework also promotes policy integration by linking carbon pricing with existing initiatives like the Perform, Achieve and Trade (PAT) scheme for energy efficiency and Renewable Purchase Obligations (RPOs) for clean energy, creating a synergistic policy environment. Ultimately, it positions India to actively participate in the global climate economy, potentially engaging in international carbon trading under Article 6 of the Paris Agreement, which could attract foreign investment and enhance its geopolitical standing as a responsible climate actor.
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