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Shannon O'Brien

Shannon O'Brien is an American attorney and Democratic politician from Massachusetts who served as from 1999 to 2003, during which she initiated audits uncovering financial abuses in the , leading to employee firings and tightened oversight controls. She previously represented her district in the from 1987 to 1993 and the from 1993 to 1999, becoming the nominated by a major for in 2002, though she lost the general to . As treasurer, O'Brien addressed inherited scandals, including apparent thefts from operations totaling over $24,000 and broader mismanagement, by commissioning audits and implementing reforms to prevent recurrence, actions that highlighted her focus on fiscal accountability despite early challenges in her term. Her 2002 gubernatorial emphasized economic and anti-corruption measures, securing the Democratic primary but falling short in the general election amid voter concerns over fiscal issues and family business ties scrutinized by opponents. In 2022, she was appointed chair of the Massachusetts Control Commission, where she oversaw regulatory implementation, but faced suspension in 2023 by Deborah over allegations of gross and workplace , claims O'Brien denied as politically motivated. A Suffolk Superior Court judge ruled in September 2025 that O'Brien's removal was unlawful, ordering her immediate reinstatement with back pay and benefits, citing insufficient evidence for the misconduct charges and procedural flaws in the process, which had spanned two years and cost taxpayers over $2 million in investigations. The episode exposed internal dysfunction at the commission, including infighting and a toxic culture, but the court's decision vindicated O'Brien's leadership tenure and underscored tensions in state oversight of the emerging .

Early life and family background

Childhood and upbringing

Shannon O'Brien was raised in Easthampton, a town in , as part of a prominent Democratic with deep in spanning four generations. Her father, M. O'Brien (1933–2004), was a lawyer and longtime member of the Massachusetts Governor's Council, serving for over 18 years and embodying "lunch-bucket Democrat" principles that influenced her early exposure to politics. Her mother, Ann (Lewonis) O'Brien, and the included five children, fostering an environment steeped in civic engagement. The family's political extended to generations: O'Brien's great-grandfather served in the , her grandfather worked for Dever, and her father pursued congressional candidacy alongside his . During her early years, O'Brien attended in Easthampton, where reportedly predicted her in as early as fourth grade. This upbringing in a politically active in western shaped her orientation toward public service from childhood.

Education

O'Brien attended in Easthampton, Massachusetts, for her early elementary education. She later enrolled at , a private preparatory academy in Easthampton, graduating in 1977. O'Brien pursued undergraduate studies at , earning a Bachelor of Arts degree in 1981; during her time there, she played on the Yale Bulldogs varsity women's soccer team. She continued her legal education at Boston University School of Law, receiving a Juris Doctor in 1985 and subsequently gaining admission to the Massachusetts Bar.

Entry into politics

1990 state representative campaign

In 1990, incumbent Democratic Representative Shannon O'Brien sought re-election to represent the 2nd District in the , which encompassed parts of and surrounding areas in County. O'Brien faced no significant opposition in the Democratic primary held on , 1990, securing nomination with 99.8% of the vote in a largely uncontested . In the general election on November 6, 1990, O'Brien narrowly defeated Republican challenger Stephen Erickson, receiving 7,935 votes (51.9%) to Erickson's 7,353 votes (48.1%), a margin of 582 votes out of 15,288 total cast. This close contest reflected competitive dynamics in the district amid broader Republican gains in Massachusetts that year, though O'Brien's incumbency and local ties contributed to her victory.

Legislative service (1991–1998)

O'Brien continued her service in the Massachusetts House of Representatives, representing the 2nd Hampshire District, through 1993, focusing on committees including Banks and Banking, Counties (as chair), Insurance (vice chair), Judiciary, and Transportation. Her legislative priorities during this period encompassed elderly affairs, health care access, employment initiatives, environmental protection, insurance cost reductions, infrastructure investment, and improving the business climate. In 1992, O'Brien was elected to the Massachusetts Senate for the Hampden and Hampshire District, assuming in and serving until 1995. There, she held positions on committees such as , ( chair), , Steering and (), and Rules, continuing her emphasis on economic development and public policy reform. A signature achievement was her sponsorship of Chapter 340 of the Acts of , signed into law on December 28, 1993, which classified and as felonies and repealed a religious exemption that had previously shielded certain faith-based cases from prosecution. This measure, developed over three years of originating in her House tenure, imposed tougher penalties for nonsexual physical injuries to children and addressed failures to seek care, despite opposition from groups like Christian Scientists who argued it unduly burdened parental religious freedoms. O'Brien also advanced economic development through bills like S.61 on Business Improvement Districts and S.1500 on incentives for business growth, alongside criminal justice reforms including H.4765 on police pursuit guidelines and S.286 increasing penalties for leaving the scene of accidents. In health care, she supported measures such as S.650 for reimbursing nurse anesthetists and initiatives on domestic violence prevention and insurance reforms to lower costs. Her Senate term ended in 1995, after which she pursued statewide office, culminating in her 1998 election as State Treasurer.

Tenure as State Treasurer (1999–2003)

Election and initial priorities

O'Brien secured the Democratic nomination for in the , primary, receiving 99.8 percent of the vote in an uncontested . In the general on , , she defeated the incumbent , , capturing approximately percent of the statewide vote and becoming the elected to statewide in without running on a . Assuming office in January 1999, O'Brien prioritized enhancing fiscal oversight and accountability amid revelations of mismanagement in agencies, particularly the . Within weeks of , her identified operational irregularities, prompting audits that uncovered apparent and inaction on lost tickets worth millions. By June 1999, she fired a longtime lottery employee implicated in and, following a KPMG Peat Marwick audit released in September, suspended additional staff in cases like Fairhaven where significant discrepancies were found, vowing an "action plan" to reform controls and prevent future abuses. Early efforts also extended to broader financial reforms, including of spending; in , O'Brien refused to authorize a issuance for the /Tunnel () over concerns about overruns and . She initiated a statewide to educate citizens on , targeting underserved groups such as women and elders. These steps aimed to restore public trust in state fiscal operations, which generated over $3 billion annually from the lottery alone.

Fiscal policies and reforms

O'Brien focused on bolstering internal fiscal controls after identifying in the state's Unpaid shortly after taking office in 1999. Investigations revealed that oversight had enabled the of millions of dollars in unclaimed funds, prompting her to implement stricter auditing protocols, internal safeguards, and accountability mechanisms to prevent similar across state financial operations. These reforms addressed systemic vulnerabilities in and unclaimed handling, reducing risks of in an office overseeing billions in state assets. A key initiative involved expanding public financial education to foster greater economic among . O'Brien established a statewide , including the launch of "The Money for Women," which delivered seminars on budgeting, investing, and to over 8,000 attendees across three years. Complementing this, her produced a quarterly financial distributed to promote practical fiscal awareness, targeting underserved demographics often overlooked in traditional policy frameworks. As chair of the Pension Reserves Investment Management (PRIM) Board, O'Brien directed policies for the PRIT Fund's , emphasizing diversified investments to support long-term pension obligations amid volatile markets. Her tenure coincided with the dot-com bust and , during which the fund posted negative returns reflective of equity market declines—such as approximate -5% for periods ending in 2001—necessitating conservative adjustments without altering core fiduciary standards. Overall, these efforts aimed to enhance transparency and efficiency in state fiscal stewardship, though critics later questioned the pace of broader debt reduction amid rising expenditures.

Criticisms and challenges

O'Brien's tenure encountered early challenges from financial irregularities uncovered in state-managed funds. In June 1999, an audit revealed apparent theft of approximately $24,000 from the Massachusetts State Lottery Commission's Boston office, prompting O'Brien to fire one employee, suspend two others, and initiate further investigations into abuses such as unauthorized vendor payments and improper reimbursements. These actions stemmed from scandals inherited from prior administrations but drew legal pushback; for instance, fired field service manager Edward Wojcik sued the Lottery Commission and O'Brien, alleging wrongful termination in connection with the probe, though federal courts later dismissed claims against her on sovereign immunity grounds while awarding Wojcik partial retirement benefits in a related state proceeding. A separate incident involved an attempted embezzlement of $9 million from the Treasurer's Unpaid Check Fund by four individuals, including two state employees, which O'Brien addressed through arrests and enhanced internal controls, though it highlighted vulnerabilities in fiscal oversight at the outset of her term. O'Brien faced criticism for a campaign finance impropriety when her gubernatorial committee solicited donations from lottery agents in 2001, raising concerns about potential conflicts given her regulatory authority over the Lottery Commission; she publicly apologized, describing it as a mistake by campaign staff unaware of the sensitivity. Opponents, including Republican gubernatorial candidate Mitt Romney, leveraged such episodes and broader state fiscal woes—such as rising debt and pension liabilities under Democratic legislative majorities—to question her effectiveness in curbing inefficiencies, though specific indictments of her treasury management were often tied to inherited systemic issues rather than personal fiscal lapses.

2002 Gubernatorial campaign

Primary victory

In the Democratic primary for the , held on , , state treasurer secured in a four-way against former U.S. of Labor , , and Warren Tolman. O'Brien, leveraging her incumbency as treasurer and prior legislative , emerged as the in pre-primary polls. With approximately 89% of precincts reporting, O'Brien received % of the vote, totaling around ,000 votes, compared to Reich's 25%, Birmingham's %, and Tolman's 17%. This margin of roughly 8 percentage points over her closest rival reflected a fragmented field but a decisive for O'Brien, amid what election officials described as light voter turnout. O'Brien's win marked her as the first woman to clinch a major political party's for in , positioning her as the Democratic against in the . The primary's outcome underscored divisions within the Democratic field, with no candidate achieving a majority but O'Brien consolidating support from party endorsers and key constituencies.

General election against Mitt Romney

O'Brien, having secured the Democratic nomination on September 17, 2002, faced Republican nominee , a businessman credited with salvaging the in , in the held on November 5, 2002. The race, marked as the most expensive gubernatorial in up to that point, featured heavy spending on advertising, with Romney's team outspending O'Brien's by a significant margin through independent expenditures. Initial polls showed O'Brien leading by double digits, leveraging her incumbency as state treasurer and appeal in a predominantly Democratic state, but Romney closed the gap through aggressive negative advertising that highlighted O'Brien's ties to the state legislature and questioned her fiscal management. The candidates engaged in multiple televised debates, including sessions on October 1 and October 29, 2002, where they clashed on issues such as abortion rights, with O'Brien defending her pro-choice stance and criticizing Romney's perceived equivocation on the topic, and education policy, including bilingual programs and school vouchers, which Romney supported for reform while O'Brien opposed as undermining public schools. Romney emphasized his private-sector experience in job creation and fiscal discipline, positioning himself as an outsider to Beacon Hill's entrenched politics, whereas O'Brien countered by touting her record of advocating for consumer protections and state investments during her treasury tenure. Other flashpoints included same-sex marriage, with O'Brien supporting civil unions and Romney favoring traditional definitions, and economic recovery amid a post-dot-com slowdown, where both pledged tax relief but differed on implementation details. On election night, Romney secured victory with 1,091,988 votes (49.77%), defeating O'Brien who received 985,981 votes (44.93%), while candidate Jill E. Stein garnered 3.5% and write-in votes accounted for the . The five-percentage-point margin reflected Romney's in mobilizing voters and suburban , despite Massachusetts' Democratic leanings, and marked the first time since that a won the governorship. O'Brien conceded the following morning, acknowledging the outcome while noting her campaign's on priorities.

Key issues and outcome

The 2002 Massachusetts gubernatorial campaign between Democrat Shannon O'Brien and Republican Mitt Romney centered on the state's severe fiscal crisis, exacerbated by a post-dot-com revenue plunge that created a projected budget shortfall exceeding $2 billion for fiscal year 2003. O'Brien emphasized her tenure as state treasurer, where she had navigated bond market pressures and maintained investment-grade ratings amid deficits, arguing for pragmatic budgeting that might include targeted revenue measures to protect education and local aid. Romney countered with promises of no new taxes, leveraging his business background and Olympic turnaround experience to advocate efficiency-driven cuts and private-sector incentives for economic growth, positioning himself as an outsider untainted by Beacon Hill's entrenched spending habits. Other prominent issues included education funding, strained by proposed cuts of up to 10% in local school aid, with both candidates pledging to prioritize classroom resources but differing on funding sources—O'Brien favoring restored state commitments, Romney stressing performance-based reforms. Healthcare access and the ballooning costs of the Big Dig infrastructure project also featured, alongside debates on crime reduction and abortion rights, where both professed pro-choice stances amid Romney's past shifts scrutinized by O'Brien. The race devolved into intense negativity, with O'Brien's ads highlighting Romney's wealth and policy inconsistencies, while Romney's portrayed O'Brien as fiscally reckless, including ads criticizing her threats to withhold Big Dig payments from contractors to enforce compliance. Televised debates, particularly one moderated by Tim Russert on October 29, amplified these clashes on fiscal policy and leadership, where Romney's sharp performances helped him overcome early polling deficits. The , 2002, saw Romney secure with 1,091,988 votes (49.77%), defeating O'Brien's 985,098 votes (44.93%) by a margin of 4.84 points, while Green-Rainbow Jill garnered 3.5%. Turnout was approximately 2.2 million, amid a concurrent failed initiative to eliminate the income tax, rejected 54% to 46% and reflecting voter fatigue with fiscal woes but resistance to radical cuts. The contest marked Massachusetts' most expensive gubernatorial race to date, with combined spending over $30 million, fueled by independent expenditures and national party involvement. O'Brien conceded the following day, becoming the first woman to win a major-party nomination for governor in the but falling short in a race analysts attributed partly to Romney's outsider appeal and debate momentum, alongside gender dynamics that drew insufficient female voter consolidation despite her endorsements from women's groups.

Intervening career (2003–2020)

Private sector roles

Following her 2002 gubernatorial election loss, O'Brien transitioned to the private sector, joining Boston's WB56 (WLVI-TV) as an investigative journalist and consumer advocate from 2003 to 2005. In this role, she focused on exposing consumer issues and earned an Emmy nomination along with a Telly Award in 2005 for her reporting. In 2005, O'Brien assumed the position of CEO of the Girl Scouts' Patriot's Trail Council, overseeing operations for the organization serving Greater Boston and surrounding areas. She led the council through its merger into a larger entity, departing in 2020 when Ruth Bramson succeeded her as CEO of the consolidated councils. Under her leadership, the council emphasized youth development programs amid evolving non-profit challenges in the region.

Advocacy and board positions

In the years following her 2002 gubernatorial campaign, O'Brien held a board position with OIKOS Software, Inc., a Manchester, New Hampshire-based company specializing in cloud-based financial applications for planning, budgeting, and reporting. She joined the board in February 2014, bringing expertise in , , and communications derived from her tenure as Massachusetts state treasurer. Her service lasted until February 2016. No prominent advocacy roles or nonprofit board memberships for O'Brien are documented during this interval, during which she primarily pursued opportunities in the private sector.

Cannabis Control Commission chairmanship (2020–2023, reinstated 2025)

Appointment and regulatory framework

Shannon O'Brien was appointed by Massachusetts State Treasurer Deborah B. Goldberg as the Treasurer's designee to the on August 31, 2022, and simultaneously designated as chair of the commission, with her five-year term scheduled to end on August 31, 2027. This appointment filled the Treasurer's commissioner slot, positioning O'Brien to lead the agency's executive functions alongside the Governor's and Attorney General's designees. The Cannabis Control Commission (CCC) operates under Section 76 of Chapter 10 of the Massachusetts General Laws, established through St. 2017, c. 55 to execute the regulatory provisions of Question 4, the 2016 voter-approved ballot measure legalizing adult-use cannabis. The commission consists of five members serving staggered five-year terms: one appointed by the Governor, one by the Attorney General, one by the State Treasurer, and the remaining two by majority vote of those three officers. Each of the three principal officers designates one appointee as an executive commissioner, with one executive serving as chair; the commission may also elect internal roles such as secretary and treasurer annually. The CCC's regulatory , codified in M.G.L. c. 94G and implemented via 935 CMR 500.000, empowers it to oversee all aspects of the , including issuing provisional and final licenses for cultivators, product manufacturers, retailers, and other establishments; enforcing seed-to-sale tracking and testing standards; inspections and investigations for ; and administering social equity programs to prioritize licensing for applicants from disproportionately impacted communities. The must public health protections, such as age restrictions and potency limits, with goals, while prohibiting certain practices like home delivery without legislative approval and mandating host community agreements for operations. As of , proposed legislative reforms, including H.4160 passed in , to restructure the into a three-member body appointed solely by the Governor, but these changes remain pending enactment.

Achievements in cannabis oversight

During her tenure as chair of the Massachusetts Cannabis Control Commission (CCC) from September 2022 to September 2023, Shannon O'Brien prioritized initiatives to position the state as a leader in research, leveraging public resources to advance medical applications and consumer education on effects related to functionality and pain management. She emphasized consumer protection measures, including enforcement of accurate THC labeling on products to inform users about potency and mitigate risks. O'Brien oversaw a maturing adult-use that had expanded to over licensed dispensaries by mid-2023, contributing to cumulative exceeding $3 billion since the 's , though much of this predated her chairmanship. Her supported the CCC's ongoing , aimed at prioritizing licenses for applicants from communities disproportionately affected by , aligning with statutory goals to historical inequities. Following her reinstatement in September 2025, O'Brien pledged to build on these foundations by conducting a comprehensive regulatory review to streamline compliance for operators while maintaining safety standards, and by enhancing inclusivity in the industry for impacted communities. This included directives for increased oversight of commercial cultivation and efforts to reduce unnecessary burdens on retailers amid falling market prices.

Workplace controversies and allegations

In 2023, suspended Shannon O'Brien from her as chair of the () following complaints from and commissioners alleging a of , , and abusive toward colleagues. The allegations included claims that O'Brien made rude, disrespectful, and racially insensitive remarks, contributing to a hostile work environment; specific accusations involved "cavalier" comments perceived as ethnically or culturally insensitive, though exact statements were redacted in public filings. Tensions reportedly escalated in interactions with Commissioner Shannon Sinclair, who is Black, where Sinclair alleged discriminatory treatment by O'Brien, while O'Brien countered that Sinclair discriminated against her on the basis of gender. The CCC initiated an internal and hired external investigators to examine the complaints, which stemmed from multiple members and included assertions of O'Brien's inability to foster a amid broader , such as high-level departures and internal conflicts. Over ,000 pages of documents related to the were later released, detailing claims of gross misconduct but also highlighting procedural disputes in the handling of the investigations. O'Brien denied the allegations, characterizing them as unfounded and politically motivated, and maintained that her leadership focused on regulatory enforcement rather than personal conflicts. Goldberg formally terminated O'Brien on , , citing the investigations' findings of and O'Brien's alleged to perform her duties effectively. O'Brien challenged the dismissal through legal under certiorari , arguing procedural irregularities and lack of substantive for the claims. In a , , ruling, Superior Court D. Ricciuti declared the termination unlawful, finding that Goldberg exceeded her and that the did not a finding of gross sufficient for removal without due process; O'Brien was ordered reinstated with back pay for the remainder of her term. Goldberg subsequently dropped her appeal, allowing O'Brien's return, though the episode underscored ongoing debates over workplace standards in state regulatory bodies. In September 2023, Massachusetts Deborah suspended Shannon O'Brien from her as chairwoman of the , citing allegations of gross that included rude and disrespectful comments perceived as racially or culturally insensitive, as and creating a for , particularly former Shawn Collins. Specific accusations involved O'Brien's use of terms like "" to refer to individuals of Asian descent and "buddies" for Black colleagues, yelling at employees, and threatening to fire the over parental leave requests. O'Brien denied the allegations, asserting that she had been appointed as a change agent to address staff insubordination and operational inefficiencies, and that her push to remove Collins had strained her relationship with . The prompted two independent outside investigations into the workplace complaints, supplemented by 19 hours of private meetings among CCC commissioners during the summer of . In , after the , formally terminated O'Brien's , concluding that the demonstrated repeated violations of the 's and of , including retaliation against critics and to maintain conduct. O'Brien responded by filing a lawsuit in Suffolk Superior Court against Goldberg, challenging the legality of both the suspension and termination under state appointment statutes and due process requirements, arguing that the actions lacked sufficient cause and procedural fairness. The proceedings highlighted internal divisions at the CCC, with some commissioners supporting O'Brien's leadership style as necessary for reform, while others backed Goldberg's intervention to address ethical concerns.

Court ruling and return to position

On September 2, 2025, Suffolk Robert ruled that Massachusetts Deborah had unlawfully suspended O'Brien in September 2023 and fired her in September 2024 as chair of the (CCC), finding Goldberg's stated grounds—involving allegations of workplace and inadequate from external investigations—insufficient to justify the actions under . The ordered O'Brien's immediate reinstatement to the chair , along with back pay and benefits retroactive to the September 2024 firing date, and confirmed her to serve the remainder of her five-year term, expiring on August 31, 2027. Goldberg appealed the ruling, and on September 5, 2025, a single Appeals Court justice issued a temporary stay, delaying O'Brien's return by at least one week pending further . However, on September 18, 2025, Goldberg withdrew her appeal, clearing the path for O'Brien's reinstatement without further legal obstacles. O'Brien resumed her duties as chair in late 2025 and presided over her first meeting since the on October 2, 2025, where she announced plans to all decisions and regulations adopted during her absence to with statutory and equity goals. The reinstatement concluded over two years of litigation stemming from workplace complaints against O'Brien, which the court deemed did not meet the threshold for removal absent violations by the appointing .

Political positions and ideology

Economic and fiscal views

During her tenure in the from to , O'Brien supported that raised the , , gas tax, and automobile tax, contributing to efforts to address shortfalls amid economic challenges. As from to , she emphasized fiscal , including initiatives to pay down the state's long-term and criticizing then-Acting Governor Swift's proposals for potentially adding $8 billion in costs to taxpayers. O'Brien advocated for reforms such as requiring state funds to be self-funded by employee contributions rather than relying on state revenues, aiming to reduce fiscal burdens on the commonwealth. In her 2002 gubernatorial campaign, O'Brien pledged to hold the state accountable for revenue collection and spending decisions, while supporting the permanent extension of a to encourage and . She also promoted consumer-oriented policies, such as fostering banking through of fees and pressuring to maintain low ATM surcharges, positioning these as measures to finances amid economic pressures. Critics, including opponent , highlighted her votes for increases as of a pattern favoring higher taxation over spending restraint. More recently, upon her 2025 reinstatement as of the , O'Brien expressed concerns that excessive regulation could hinder economic success by excluding diverse market entrants and impeding business operations, committing to a regulatory focused on streamlining to oversight with . This stance reflects a pragmatic approach to fiscal impacts in regulated industries, prioritizing to maximize revenues from the sector without compromising public safety standards.

Social policies

O'Brien supports a woman's right to , having shifted from opposition during her 1986 legislative to advocating in the 1990s. She favors reducing the minimum for abortions without from 18 to 16. On LGBTQ issues, O'Brien endorses civil protections for and individuals, including of civil unions for committed same-sex couples. Although personally opposed to same-sex marriage, she stated she would sign legislation legalizing it if passed by the Massachusetts Legislature. Regarding gun control, O'Brien Massachusetts' existing strict regulations, including mandatory locks or , while seeking to with the of hunters and sportsmen. She proposed increasing penalties for by felons. In criminal justice, O'Brien opposes the penalty, preferring without for serious offenses, and supports DNA fingerprinting for convicted felons to investigations. On education policy, as state treasurer, O'Brien launched the U.Fund in 2001, a tax-advantaged 529 savings aimed at increasing to . She advocated for and resources to implement standards-based schooling.

Criticisms from conservative perspectives

During the 2002 Massachusetts gubernatorial , Republican Mitt Romney criticized Democratic nominee Shannon O'Brien's fiscal approach, asserting that her would result in "another massive increase," portraying her as aligned with policies favoring higher and taxation typical of the state's Democratic . Romney further contrasted his platform against O'Brien's, accusing her of representing "waste and destructive big-government" inefficiencies amounting to at least $9 billion in state expenditures. Conservative commentator has lambasted O'Brien as a "fourth-generation " emblematic of entrenched political , questioning her in public roles like chairing the given her of alleged unprofessional conduct and ineffective leadership in prior offices. Such critiques frame her career progression through Democratic networks as prioritizing insider connections over merit-based governance, a common conservative indictment of machine politics that sustains expansive regulatory bureaucracies like the CCC.

Personal life

Family and marriages

O'Brien is married to Emmet Hayes, a former representative and lobbyist whom she met while both served in the . The resides in . In July 1999, while serving as , O'Brien announced her with a child due in December of that year. No further details on additional children or prior marriages are publicly documented in reliable sources.

Health and other personal matters

O'Brien attended Catholic for much of her early , including , where she learned prayers she continues to recite. regarding her have not been publicly disclosed in available records.

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