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The Asser International Sports Law Centre is part of the T.M.C. Asser Instituut

The International Partnership against Corruption in Sport (IPACS) and the quest for good governance: Of brave men and rotting fish - By Thomas Kruessmann

Editor's note: Prof. Thomas Kruessmann is key expert in the EU Technical Assistant Project "Strengthening Teaching and Research Capacity at ADA University" in Baku (Azerbaijan). At the same time, he is co-ordinator of the Jean-Monnet Network "Developing European Studies in the Caucasus" with Skytte Institute of Political Studies at the University of Tartu (Estonia).


The notion that “fish rots from the head down” is known to many cultures and serves as a practical reminder on what is at stake in the current wave of anti-corruption / integrity and good governance initiatives. The purpose of this blog post is to provide a short update on the recent founding of the International Partnership against Corruption in Sport (IPACS), intermittently known as the International Sports Integrity Partnership (IPAS), and to propose some critical perspectives from a legal scholar’s point of view.

During the past couple of years, the sports world has seen a never-ending wave of corruption allegations, often followed by revelations, incriminations and new allegation. There are ongoing investigations, most notably in the United States where the U.S. Department of Justice has just recently intensified its probe into corruption at the major sports governing bodies (SGBs). By all accounts, we are witnessing only the tip of the iceberg. And after ten years of debate and half-hearted reforms, there is the widespread notion, as expressed by the Council of Europe’s (CoE’s) Parliamentary Assembly (PACE) Resolution 2199/2018 that “the sports movement cannot be left to resolve its failures alone”.


What is IPACS and why has it been created? 

IPACS was founded under the authority of the International Olympic Committee (IOC) as “a cross-sectorial, multi-stakeholder platform to enable a pragmatic partnership allowing the development and implementation of programmes and initiatives by the various partners, to strengthen efforts promoting transparency, integrity and good governance in sports organisations, in particular through education and awareness-raising initiatives.” These words, taken from the Declaration of the Second International Forum for Sports Integrity (IFSI), held in Lausanne on 15 February 2017, provide a summary of the tasks IPACS was agreed to address. Interestingly, later on the official mission statement was significantly watered down: “To bring together international sports organisations, governments, inter-governmental organisations and other relevant stakeholders to strengthen and support efforts to eliminate corruption and promote a culture of good governance in and around sport.” This change mission statement betrays some of the controversies that lie behind the difficult quest for good governance and integrity.

One obvious question is why was it only in 2017 that IPACS was created? The short answer is that IFSI took up an idea that had been put forward at the UK Anti-Corruption Summit one year earlier. However, the real question is, why did this initiative emerge only in 2016/17 after corruption scandals had been hitting SGBs over the entire past decade and had become particularly acute with FIFA around 2010? The reason is that there is a major undercurrent in fighting corruption in SGBs: the doctrine of the autonomy of sports. For historical reasons, most major SGBs have been created as private entities, often associations or non-commercial entities, and are adamant at defending the notion of independence and autonomy of sports. While international anti-corruption conventions by the nature of international law address only states, SGBs are in the fortunate position to have to comply only with the criminal laws of their host state. And despite the fact that the commercialisation of sports has turned SGBs into multi-billion dollar ventures, since their inception their internal structures have resembled “gentlemen’s clubs”. It therefore comes as no surprise that even in the IFSI Declaration of February 2017, participants are eager to refer to the 69th United Nations General Assembly proclaiming the autonomy of sports and shifting the responsibility in fighting corruption primarily to governments.

This undercurrent explains why the original IPACS mission statement calls for a “pragmatic partnership” and emphasizes education and awareness-raising initiatives. The truth is that even by 2017, many stakeholders (“participants to the IFSI Declaration”) were fighting to protect the independence of SGBs teeth and claw. And that only now a consensus is emerging, as expressed in the CoE PACE Resolution 2199/2018, that “enough is enough” and that SGBs have actually failed in cleaning up their business. Earlier resolutions, e.g. by the 14th CoE Conference of Ministers responsible for Sport from 22 February 2017, have been more diplomatic in language. But it is clear that IPACS, despite all defensive battles from SGBs, is now representing a change in the tide of governments and anti-corruption related international organisations (such as CoE, OECD and UNODC) finally eager “to talk tough” with SGBs.


Is “talking tough” with SGBs credible? 

Now, even if we assume that the most recent investigations into corruption scandals were the straw that broke the camel’s back, will international anti-corruption organisations and governments be credible in fighting corruption by breaking up the doctrine of sports autonomy? Switzerland has been in the vanguard of national governments extending the offense of corruption in the private sector to NGOs and other non-commercial entities. This new offense (Arts 322octies – 322decies Swiss Criminal Code) is innovative because it does no longer require a distortion of the market. GRECO is reported to be preparing a “Typology Study on Private Sector Corruption” which will also cover the sports sector.

International anti-corruption organisations, by contrast, have a more careful line to tread. Arguably, there is a host of integrity-related problems in the world of sports that has been viewed for a long time in a reductionist way. Doping, match-rigging and other kinds of manipulation of sports events have ever too often been seen independently of the governance regimes of SGBs. Looking at them as individual wrongdoing at best supported the argument that SGBs may not have been vigilant enough. But this never came close to insisting that such kinds of wrongdoing are the logical consequence of structural governance defects in these bodies. As IPACS is now marking a shift in the consensus towards a more holistic and interventionist approach, what will this mean for international anti-corruption organisations? The problem is that during the past decade, many of them were only too happy to focus on singular problems while being co-opted by SGBs into “partnerships” to “address” governance issues. Analytically, this can be described as a horizontal legitimacy-building strategy by SGBs. By concluding memoranda of understanding, e.g. between the IOC and the UN or between FIFA and the CoE, SGBs, depending on their level of regional or universal activities, co-opted their potential critics and tried to acquire legitimacy by involving them into so-called reform processes.

Arguably, by being drawn into piecemeal reforms of SGBs over the last decade, international anti-corruption organisations have become part of the problem. The question is, how can they become part of the solution again? This is where IPACS presents an answer: it can be understood as a tacit dissolution of the prevailing partnerships and, depending on style and substance, offering a fresh start for a holistic and thus governance-related approach to establishing integrity. 


How is IPACS going about its work?

As mentioned before, IPACS was created in the wings of the Second IFSI, held on 15 February 2017 in Lausanne, and it will operate within the broader IFSI structure. By 2019 when the Third IFSI is scheduled, IFSI participants will therefore review a progress report on the activities realized which invariably includes any progress made by IPACS.

The work of IPACS itself is structured on three levels. There is a core group in which the most important anti-corruption international organisations are represented, a Working Group which is basically a tripartite structure representing the interests of SGBs, governments and inter-governmental organisations, and topical task forces. Core group members (CoE, IOC, OECD, UNODC and the UK Government) are in charge of preparing and co-ordinating the Working Group meetings. The first Working Group meeting took place at the CoE’s venue on 21 June 2017, the second Working Group meeting was held at the OECD on 14-15 December 2017. The third Working Group meeting is scheduled for June 2018 at the IOC’s headquarters in Lausanne.

So far, three task forces with experts from outside the Working Group have been established:

  • Task force 1 (TF1) on reducing the risk of corruption in public procurement;
  • Task force 2 (TF2) on ensuring transparency and integrity in the selection of major sport events, with an initial focus on managing conflicts of interest; and
  • Task force 3 (TF3) on optimising the processes of compliance with good governance principles to mitigate the risk of corruption.

The expected outputs from these task forces are as follows:

(1) TF1 to develop by the end of 2018 a general mapping of procurement standards to the specific context of sport, possibly complemented by illustrative case studies on how these standards could be applied in practice.

(2) TF2 to define conflict of interest in the specific sports context and undertake a stock-taking exercise of procedures and practices for managing conflict of interest in the specific context of the selection of major sporting events.

(3) TF3 “to aim to”

  • map relevant governance standards and their applicability to the sports context;
  • consider developing indicators to evaluate compliance with these standards;
  • consider means for building capacity to implement good governance standards.

From the wording it appears that from TF1 to TF3, the tasks get ever larger and the commitment ever more unspecific. While TF1 is given a precise task with a definitive deadline, TF3 is asked to “aim to” reach certain goals. But this specific wording is perhaps a correct reflection of the difference in the scope of the problem. Procurement standards can easily be adopted from the corporate world. There is no specific challenge in running procurement for SGBs. Conflicts of interest, in particular when selecting major sports events, are of a different magnitude. Very often, the traditional ways of addressing such conflicts in the corporate setting or in public administration are clear-cut and addressed in a number of regulations. In SGBs which have been traditionally considered as “gentlemen’s clubs”, conflicts of interest run through the entire fabric of the institution. Therefore, the magnitude is much larger. But the real issue is how shall the mandate of TF2 be distinguished from that of TF3? Conflicts of interest and bad governance are twin concepts, and both flourish in the same environment. So, let us now turn to the central question: what can be expected from the most crucial TF3 in the IPACS setting?


Do governance standards finally get applied? 

In its first set of assignments, TF3 is asked to look into “relevant” governance standards, map them and analyse their applicability to the sports context. What sounds like a logical sequence of steps is actually quite muddled. Judging what is relevant and what is not is certainly the task at hand, but if we assume that “relevant standards” have been found, why is it necessary in a second step to “analyse their applicability in the sports context”? Is not applicability in the sports context the key criterion for judging what is relevant and what is not? Or will there first be other criteria for judging relevance outside from applicability in the sports context?

The point here is not to ridicule the language of the task force assignment, but to point to a deeper problem. Over the entire past decade, there have been numerous projects seeking to identify relevant governance standards. Without going into this issue very deeply, let me name just the most important ones:

In addition, when it comes the second set of assignments to TF3, in particular “developing indicators to evaluate compliance with these standards”, the following benchmarking tools already exist:

So all things considered, a large amount of work has already been done to identify relevant standards for SGBs. Would it not simply be enough to take these project results seriously and start implementing them and evaluate their effects? Indeed, from an outside observer’s point of view, it looks as if this entire process is flawed. There is simply no need to go into another round of identifying standards, assessing their relevance and benchmarking them with indicators when all the work has already been done.

One argument to support the TF3 engagement is that there are simply too many different standards, and that, when it comes to governments intervening with SGBs and forcing them to adopt good governance standards, there should be one agreed-upon set of standards for all cases. Likewise, CoE PACE Resolution 2199 (2018) “strongly calls for the development and implementation of a solid set of harmonised good governance criteria” (italics not in the original). And in para 4 of the appendix to this Resolution, PACE even speaks of the necessity of identifying “core criteria” of good governance in sport. While such quest for harmonising and reducing to core elements may be intellectually stimulating, there is doubt whether the sports world can accept another round of soul-searching. The fish has already been rotting for a while, and the same “brave men” (aka experts) who had been dealing with the issue for a decade are now employed again in yet another attempt of the international community to clear up the mess of SGBs. We will eagerly await some results when the IPACS Working Group will convene for its next meeting in June 2018.

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Asser International Sports Law Blog | Blog Symposium: The Impact of the TPO Ban on South American Football. By Ariel N. Reck

Asser International Sports Law Blog

Our International Sports Law Diary
The Asser International Sports Law Centre is part of the T.M.C. Asser Instituut

Blog Symposium: The Impact of the TPO Ban on South American Football. By Ariel N. Reck

Introduction: FIFA’s TPO ban and its compatibility with EU competition law.
Day 1: FIFA must regulate TPO, not ban it.
Day 2: Third-party entitlement to shares of transfer fees: problems and solutions
Day 4: Third Party Investment from a UK Perspective.
Day 5: Why FIFA's TPO ban is justified.

Editor’s note: Ariel N. Reck is an Argentine lawyer specialized in the football industry. He is a guest professor at ISDE’s Global Executive Master in International Sports Law, at the FIFA CIES Sports law & Management course (Universidad Católica Argentina) and the Universidad Austral Sports Law diploma (Argentina) among other prestigious courses. He is a regular conference speaker and author in the field of sports law.

Being an Argentine lawyer, Ariel will focus on the impact FIFA’s TPO ban will have (and is already having) on South American football.


Introduction

Before discussing the impact of the TPO ban, it is important to highlight that the purposes of TPO in South America are somehow different than in Europe. Here “economic rights” (that’s how we call it) are basically assigned in four different moments and/or situations:

First, when a youth player is first registered for the club at amateur level. This is a recognition to the person or entity that brings the player to the club and is usually between 10% and 20% of a future transfer. This practice widens the club’s scouting net and attracts promising young players from the small clubs to the big ones. The percentage can be assigned to the former club of the player, a third person who brings the player (a scout / intermediary) or to the player’s family if he comes as a free or unregistered player. In these cases the position of the beneficiary is really passive and the assigned rights are fragile and dependent of many factors (the player is not even a professional yet).

A second stage in which rights are assigned to third parties is when the club needs money to cover other obligations, unrelated to that particular player. Every club has one or more starlets and investors are willing to take the risk and acquire a percentage of the player’s economic rights. For the club, the sale of portions of the economic rights helps to balance its books and provides an alternative source of credit. In this case there’s no “standard” percentage, it depends on the money the investor is willing to pay, the potential value of the player and the needs of the club. The influence, or the ability to “force” a transfer of the player, of the third party is also subject to each particular agreement, with a direct correlation between percentage owned and influence.[1]

The third situation is when a club wants to hire a player but does not have the financial resources to do it. The rights of such a player might be owned by a company or a company might be willing to acquire the player’s rights from the former club and bring him to the new club. Consequently, the new club is used as showcase only. Under this situation, the player is usually hired for a single season with an option for the purchase of a percentage in favor of the new club, triggering –if executed- a long term employment contract. Sometimes, even if the option is not executed the TP owner recognizes the club a small percentage (around 10%) as “showcase rights” in case the player is immediately hired with a long term contract by another club after the termination of his one season contract. Under these circumstances, the influence of the TP owner is clearly strong, irrespective of how the relevant documents are drafted. 

Clubs could also turn to selling economic rights to third parties in order to cancel debts or to seduce a player for a contractual renewal. A club accepts to assign a share to the player against previous salary debts or in order to convince him to renew the contract without a mayor salary raise. If the club cannot pay the amounts wanted by the player to renew, it offers to assign the player a percentage of his own transfer. In most South American countries, the law or a collective bargaining agreement grants players a minimum percentage of the proceeds of his own transfer (between 10% and 20% depending the country)[2], but this additional assignment is heavily used to satisfy a player’s demands at a renewal of the employment contract.

With so many purposes, and taking into account the financial needs of clubs, the lack of alternative sources of financing and the number of South American players transferred each year, it is obvious that the use of TPO in South America is definitively widespread. Therefore, the impact of the ban will be certainly important, especially in the first years when clubs have not yet found alternative forms of financing.  


The impact of the FIFA Ban

The situation is aggravated by the short transitional period established by FIFA. While previous statements of FIFA officials suggested a period of 3 to 4 seasons[3], the FIFA Circular letter 1264 reduced it to just four months.

It is hard to predict the effectiveness of the prohibition. The current scenario shows many parties looking for forms or mechanisms to circumvent the prohibition, while others are trying to challenge it before the courts. If we consider the experience of art.18bis of the FIFA Regulations on the Status and Transfer of Players (RSTP) (an article included in the FIFA rules right after the Tévez affair as an attempt to protect the independence of clubs in its transfers decisions limiting the power to force a transfer, third parties usually had in TPO agreements), the forecast for the effectiveness of art.18ter is not good. But, as we will show, in the case of art.18ter there’s a clear new impulse and moreover, UEFA stands strongly behind the prohibition. Therefore, in my opinion, we can expect a different outcome. I think the ban will be especially effective in cases of players involved in transfers from South America to the European leagues. Transfers to Portugal, Spain or Greece (countries that relied on TPO in the recent past) will be heavily scrutinized. Nonetheless, it is unclear whether at domestic level, especially in South America, the practice will be banned with similar efficiency or if it will continue secretly with limited or no control by the national Associations. Some federations already implemented their own form of TPO ban (even when art.18ter RSTP is mandatory at national level). Brazil was one of the pioneers[4] and in Argentina, the fiscal authorities, passed a regulation banning TPO agreements.[5]

As to the ways to try to circumvent the TPO ban, I think we will see a raise in the use of “bridge transfers”, which is basically the registration of a player in a club just to cover the TPO with a federative “shell”. With this maneuver, the TP owner artificially enjoys all the benefits of being a club, like retaining a percentage of the player’s future transfer or controlling the player’s career by signing a long term contract with a huge buyout clause loaning the player to different clubs each year.[6] According to the FIFA regulations any club that had ever registered the player is not a “third party” (see definition 14[7]). There is no further requirement, no “sporting interest” in the registration or playing time, the simple act of registration allows a club to have a share of the player’s future transfers. To this regard, while it is true that FIFA already sanctioned clubs for “bridge transfers”[8], it was only an isolated case (still pending at CAS) and we can see examples of patent “bridge transfers” in every transfer window and in the top-5 leagues, not just in minor competitions. 

Another way to deceive TPO is to assign a share to the player and a further (hidden) assignment from the player to a third party. At this point, a big question arises: is the player a third party according to the FIFA regulations? Can a club assign a percentage of the player’s future transfers to the player himself?
As said, the opportunity for a player to profit from his own transfer is a labour right in many South American countries. While South American employment laws, statutes and/or CBAs tend to fix a minimum percentage of the transfer fee for the player, there is no cap and in theory a player can receive up to 100% of the transfer price. 

The FIFA regulations only exclude the two clubs involved in a transfer and the previous clubs where the player was registered from being a third party. Hence, in principle, the player seems to be a “third party” too.

But art.18ter provides that no club or player shall enter into an agreement with a third party, based on the wording of this provision it is clear that a player should not be considered a “third party”. Moreover, the player is a necessary party in every transfer agreement and he is also subject to sanctions if he violates the aforementioned FIFA prohibition on TPO according to paragraph 6 of art.18ter.

In addition, the fact that in many South American countries the player’s entitlement to a share of his own transfer is a labour right, a systematic interpretation of art.18ter makes it plausible to sustain the validity of the assignment of a percentage of the transfer fee to the player. In that regard, it is important to recall that FIFA’s prohibition has in principle effect only at federative level. This means that at civil level, any assignment will still be valid and enforceable.

Furthermore, the jurisprudence of the majority of the South American countries holds that federative rules have only effect within the framework of the federation and cannot contradict the civil legislation, of a higher hierarchy.

Argentina is an exception in South America. Ordinary Argentine courts settled that Federative rules are the “lex specialis” in relation to the general rules of the civil code. Therefore, if the regulations of FIFA and/or the Argentine Federation prohibit TPO, any contract in that sense will be null and void, even when under our civil code the assignment of a future transfer is perfectly valid.

Saved for this exception, the result of this is that FIFA’s remedy might be worse than the disease. Since FIFA can only sanction its own members (meaning clubs and players), if a club or a player enters into a TPO agreement, such player or club might be subject to disciplinary sanctions and the contract will still be valid and enforceable.

It is not unthinkable that a player or a club surrendering to the need of funds and signing a TPO agreement despite FIFA’s ban, thereby placing himself in a difficult position. The counterpart (the third party) might force the compliance of the agreement by threatening with reporting the deal to FIFA. In the end, the ban will have the opposite effect to what was sought: Players and clubs will be more vulnerable in their relationship with the third-party than before the introduction of art.18ter RSTP.

As said, it is hard to think that clubs will immediately find an alternative source of funding or will be able to live within their own means. Therefore, it is probable that clubs will try to circumvent or challenge the rule.

Again, the final consequences are hard to predict, but will of an important magnitude. TPO is not just a financing method ‎to bring players to clubs, sharing the risk with the investor, it is also a way to get cash-flow without the need to transfer the player to another club. Furthermore, it is an essential part of the scouting method that widens the club’s network, attracts young talents to the clubs and is also a way to cancel debts towards the player or to achieve a renewal of his contract.  


Conclusion

To conclude, I don’t think the TPO ban is the best way to achieve the –alleged- objectives declared by FIFA. Obligation to disclose, controlled payments (via TMS for example) and other regulatory approaches would have been better options. The pressure from an investor could have been diluted by setting a limit (maximum percentage or maximum number of players under TPO) and the reality is that the pressure to “force” a transfer comes in general from other actors, mainly the player and/or his agent. 

Now the new “pushers” will be the European clubs. How will it be possible for an Argentine club to refuse a -say- € 5 million transfer for a 19 year old player even if the club knows his value will double or triple if he stays at the club? With the TPO ban the club cannot rely on an investor paying, for example, € 3 million for 50% of the player's economic rights to “hold on” a few years. It is worth remembering that Chelsea tried to seal the transfer of Neymar for € 20 million when he was 18. However, Santos managed to reject such offer relying on TPO.

South American players account already for approximately 25% of all the international transfers worldwide[9], after the TPO ban this percentage will certainly raise.

As to the “morals” arguments, recently reiterated by UEFA’s president Platini who said TPO is “a form of slavery”[10], I believe they are just a fallacy. Every transfer needs the player’s consent and the investor owns a share of the profit of a potential future transfer, not a part of the human being. Otherwise, for clubs, owning 100% of a human being would be equally immoral.

Moreover, other types of assignments, like third party litigation funding, are legal in many countries, including the UK and France. The similarities and analogies than can be made with TPO are immense and nobody is claiming third party litigation funding is a way of “owning a person’s justice”.

With the introduction of the Financial Fair Play Regulations European clubs and federations are looking into ways to reduce expenditures and also scrutinizing what the “neighbors” are doing. Clubs want cheaper players and clubs from countries were TPO was long ago banned had a handicap for UEFA spots against clubs from countries were TPO was allowed and relied on TPO to acquire players.[11] The TPO ban serves both objectives: A reduction in the player’s transfer price and an end to the Spanish and Portuguese transfer “tactics” that relied heavily on TPO. 

Also, the inclusion or exclusion of the player in the definition of “third party” triggers conflictive issues. In most South American countries national labour laws or CBAs allow the player to obtain a percentage of the proceeds of his own transfer. If FIFA tries to extend the definition of “third party” to include players, this might certainly prevent a complete implementation of FIFA´s TPO ban in South America. 

As a conclusion I can say that, for South American clubs, the TPO ban just changed the “predator” in the transfer market. Our clubs can now stand stronger against investors, but as counter-effect they are in a much weaker position against European clubs‎.



[1] For a discussion on “buy-sell” clauses (the core of any TPO agreement) and whether they constitute prohibited influence see my opinion: Do “Buy-Sell” Clauses In Third Party Ownership Agreements Constitute Undue Influence Under FIFA’s Art 18bis?

 http://www.lawinsport.com/blog/argentine-sports-law-blog/item/do-buy-sell-clauses-in-third-party-ownership-agreements-constitute-undue-influence-under-fifa-s-art-18bis

[2] Brazil, Peru and Bolivia are exceptions to this rule; no such right is established in their regulations. In Argentina the minimum percentage is 15% according to art.8 of the CBA 557/2009 http://infoleg.mecon.gov.ar/infolegInternet/anexos/155000-159999/158453/norma.htm , in Paraguay 20% for international transfers, art.12 law 5322 from 29th  October 2014 http://www.escritosdederecho.com/2014/11/ley-5322-del-29-10-2014-estatuto-del-futbolista-profesional.html , in Uruguay 20%, art.34 of the Professional Footballers Statute http://www.mutual.com.uy/index.php?option=com_content&view=article&id=49&Itemid=83 , in Ecuador 15%, Chile 10% law 20.178 http://www.sifup.cl/wp-content/uploads/2014/12/Ley-20178-Estatuto-Laboral-del-Futbolista-Profesional-Chileno.pdf , and Colombia 8% art.14 Colombian Players Status Regulations http://fcf.com.co/index.php/la-federacion-inferior/normatividad-y-reglamento/158-estatuto-del-jugador

[3] http://www.fifa.com/aboutfifa/organisation/footballgovernance/news/newsid=2463828/

[4] http://www.insideworldfootball.com/world-football/south-america/16188-brazil-conforms-and-sets-date-for-ending-tpo-funding-practices

[5] General Resolution 3740/2015 http://eco-nomicas.com.ar/7183-rg-3740-afip-ganancias-transferencia-de-jugadores

[6] For more on “Bridge Tranfers” http://www.lawinsport.com/sports/football/item/what-is-a-bridge-transfer-in-football

[7] Third party: a party other than the two clubs transferring a player from one to the other, or any previous club, with which the player has been registered.”

[8] http://www.fifa.com/aboutfifa/organisation/news/newsid=2292724/index.html

[9] Source: FIFA TMS Global Transfer Market Report 2015, page 78.

[10] http://in.reuters.com/article/2015/03/16/soccer-platini-tpo-idINKBN0MC1B220150316

[11] http://www.e-comlaw.com/world-sports-law-report/article_template.asp?Contents=Yes&from=wslr&ID=1388

 

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