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CSD-12-090 - Zone Change - 439 Bridgeport Road
l Staff Report K~`rc;H~~T~.R Community Services Department www.kitchenerca REPORT T0: Planning & Strategic Initiatives Committee DATE OF MEETING: June 18, 2012 SUBMITTED BY: Alain Pinard, Director of Planning PREPARED BY: Andrew Pinnell, Planner - 519-741-2668 WARD(S) INVOLVED: U11ard 1 DATE OF REPORT: May 17, 2012 REPORT NO.: CSD-12-090 SUBJECT: ZONE CHANGE APPLICATION ZC121041B/AP 439 BRIDGEPORT ROAD DAVID JULIEN RECOMMENDATION: That Zone Change Application ZC121041BIAP (David Julien, 439 Bridgeport Road), for the purpose of changing the zoning from Residential Three Zone (R-3) to Residential Four Zone (R-4) with Special Regulation Provision 629R, in the form shown in the "Proposed By-law" dated May 10, 2012, attached to Report CSD-12-090 as Appendix "A", be a roved. 3-1 BACKGROUND: The subject lands are located on the south side of Bridgeport Road, between Lancaster Street West and the Highway 85 on/off ramp. The lands are comprised of two abutting properties that have been consolidated for the purpose of redevelopment: a lot municipally addressed as 439 Bridgeport Road which contains cone-storey single detached dwelling, and a vacant lot at the corner of Leander Place and Bridgeport Road. In total, the lands have approximately 30.5 metres of frontage on Bridgeport Road and 48.8 metres of frontage on Leander Place. The lands are presently designated Low Rise Residential in the Official Plan and are zoned Residential Three Zone (R-3). The surrounding neighbourhood contains a range of low density residential land uses: the property on the opposite side of Leander Place is a 6-unit apartment building, the property immediately to the south is a duplex, the property immediately to the west is a single detached dwelling. Two triplexes are located a few properties to the south. Single detached dwellings represent the predominant land use in the greater neighbourhood which extends to the south and east. Currently, there are nosemi-detached dwellings in the neighbourhood. REPORT: Proposed Zone Change The applicant is proposing to change the zoning of the lands from Residential Three (R-3) to Residential Four (R-4) with a Special Regulation Provision. The R-3 Zone currently permits the following uses: coach house dwelling unit, duplex dwelling, home business, private home day care, residential care facility, and single detached dwelling. The proposed R-4 Zone allows all of the above R-3 uses as well as semi-detached dwellings. The proposed rezoning will facilitate the future construction and severance of three semi-detached dwellings (i.e., three buildings), with each semi-detached house (i.e., half of asemi-detached dwelling) being located on its own lot for a total of six units (see concept plan attached as Appendix "B"). Proposed Special Regulation Provision A multi-part Special Regulation Provision has been requested to customize the zoning for the proposed redevelopment concept: While asemi-detached house may contain two dwelling units if duplexed (for a maximum of four dwelling units per semi-detached dwelling), the applicant has requested a provision to prohibit duplexing and limit the number of dwelling units to one. The effect of this regulation is to limit the unit density to a maximum of six units for the proposed development which will achieve greater compatibility with the existing neighbourhood. z 3-2 The applicant has also requested the following Special Regulation Provisions: Standard R-4 Regulation Proposed Special Variation Regulation Provision Minimum Lot 235.0 m for each semi- 222.97 m for each semi- 12 m (129 sq.ft.) Area detached house detached house Minimum Lot 7.5 m for each semi- 7.32 m for each semi- 0.18 m (7 inches) Width detached house detached house a) 20 m for each dwelling, a) 19.51 m for each dwelling, 0.49 m (1.6 ft) Min. Corner Lot and and Width b) 12.5 m for each dwelling b) 12.19 m for each dwelling 0.31 m (1.0 ft) unit unit Staff is of the opinion that the special regulations proposed above represent very minor variations of the standard R-4 regulations. In addition, through the review of the Zone Change Application, the Region reviewed a noise impact study. The Zoning By-law currently requires that residential buildings maintain a minimum 12 metre setback from arterial roads, such as Bridgeport Road, in order to reduce road noise impact for residents. The study demonstrated that a reduced setback of 5.7 metres will meet provincial noise requirements as long as certain mitigative measures are employed. Such measures are commonly employed in subdivision and condominium developments and are also prevalent through severance applications. The Region supports the applicant's request fora 5.7 metre setback from Bridgeport Road. In addition, the Region has requested the following regulations which pertain to noise mitigation: that all semi-detached dwellings be constructed with: a forced air ducted heating system to allow central air conditioning (so windows do not have to be opened for warm weather ventilation), double glazed windows, and acoustical door and window seals. Furthermore, a semi-detached dwelling located close to Bridgeport Road must have constructed along with it a 2.25 metre high noise attenuation wall running parallel with the side lot line abutting Bridgeport Road. City of Kitchener Official Plan Conformity and Neighbourhood Comaatibility The City's Official Plan designates the subject lands as Low Rise Residential. It is intended that these districts accommodate a full range of housing types, mixing and integrating different forms of low intensity housing. As previously stated, the surrounding neighbourhood contains low rise apartment buildings, triplexes, duplexes, and single detached dwellings, however, no semi- detached dwellings are present. Staff is of the opinion that the introduction of semi-detached dwellings to the neighbourhood, especially on the perimeter, is desirable. The Official Plan further states that: "V1lhere special zoning regulations...are requested or proposed to facilitate residential intensification or a redevelopment of lands, the overall impact of the special zoning regulations... shall be reviewed to ensure the following:.. . v) The lands can function appropriately and not adversely impact adjacent properties by providing both an appropriate number of parking spaces and an appropriate landscaped/amenity area on the site... 3 3-3 vi) The impact of each special zoning regulation...will be reviewed prior to formulating a recommendation to ensure that a deficiency in one zoning requirement does not compromise the site in achieving objectives of compatible and appropriate site and community design and does not create further zoning deficiencies." Staff is of the opinion that the special zoning provisions requested are appropriate since the required number of parking spaces can be provided within the proposed attached garages. In addition, landscaped/amenity areas of an adequate size can be provided for each house. Staff notes that the minimum rear yard area of asemi-detached house is 56.25 square metres, whereas the concept plan provided shows an area of 55.78 square metres, which is substantially similar. Duplexing of each semi-detached house would be prohibited. Front, rear, interior side setback, and maximum building height requirements of the R-4 zone, (the regulations for which are identical to the R-3 Zone, being the predominant zoning of the surrounding neighbourhood), will all be maintained. While the proposed zone change will facilitate the creation of lots that are smaller from what currently exists in the neighbourhood, staff is of the opinion that the zone change supports a use that is both compatible and desirable. The zone change introduces a new, low-density residential land use that is not currently present in the neighbourhood, thereby helping to achieve a healthy mix of housing types that also includes triplexes and a 6-unit apartment building. Provincial Policy Statement (PPS) 2005 The PPS states that "Planning authorities shall provide for an appropriate range of housing types and densities... by... permitting and facilitating: 1. all forms of housing required to meet the social, health and well-being requirements of current and future residents... and 2. all forms of residential intensification and redevelopment..." The subject proposal would contribute to the mix of housing that the PPS seeks. In addition, the proposal would facilitate residential intensification and redevelopment. Growth Plan for the Greater Golden Horseshoe, 2006 The subject property is within the Built-up Area as defined by the Growth Plan. The Plan promotes the development of healthy, safe, and balanced communities. The proposal conforms to the Plan by meeting several objectives, such as achieving intensification within the Built-up Area. Demolition Control and Severance Applications Demolition of the existing single detached dwelling at 439 Bridgeport Road is necessary in order to allow for future redevelopment of the subject site. As such the applicant has also filed a demolition control application (Application Number DC12/04/B/AP) that will be heard by the Planning and Strategic Initiatives Committee on June 18, 2012. Should the subject Zone Change Application receive Council approval, the applicant has stated that he would file a severance application and begin construction of the first semi-detached dwelling immediately. Approval of the severance application would be necessary in order to obtain a building permit for the two other dwellings. It should be noted that through the severance application, the Region has stated that a minor road widening (1.57 metres) would be required. City and Regional staff have reviewed the zone change in light of this and have no concerns. 4 3-4 Community Circulation Comments: As a result of the circulation of this application, six members of the community submitted comments (see Appendix "F"). A summary of these comments, along with staff's response, are outlined below: 1. The proposal would have the effect of cleaning up the site, developing an undeveloped property and increasing the supply of affordable housing Staff agrees that the proposal represents an opportunity to ameliorate the area by redeveloping this underutilized property. While, staff is not aware of the cost or affordability of the proposed semi-detached houses, the proposal would increase variety and supply of housing in the area. 2. Visibility for motorists and school buses will be poor due to the reduced setback of the buildings from Bridgeport Road and Leander Place. The City's Zoning By-law and Fence By-law contain provisions requiring that buildings and fences not be located within a 7.5 metre by 7.5 metre corner visibility triangle. The purpose of such triangles is to ensure adequate visibility for motorists to turn safely onto an intersecting street. Even after the contemplated future severance and road widening, the site will be able to comply with this regulation. In addition, the only special zoning regulation for setback from a street that is being requested is for noise mitigation, not for visibility. 3. Traffic in this area is already too dangerous. Adding more development will worsen the situation Transportation Services Division has commented that it has no concerns with the proposed zone change and proposed development. The scale and intensity of the proposed development is not great enough to add significant traffic to the street system in this area. 4. The number of parking spaces for this development is inadequate. Where will visitors park? Each semi-detached house will be designed with an attached garage in order to meet minimum parking regulations. In addition, an adequately sized driveway will be provided on which one vehicle will be allowed to park. Transportation Services Division has confirmed that based on the concept plan, two on-street parking spaces may be provided in front of the subject property on Leander Place and that the rest of the street is available for on-street parking. 5. The unit density of the proposed development is too high and is not compatible with the surrounding neighbourhood. The proposed zoning allows semi-detached lots to be introduced into the neighbourhood. The neighbourhood is primarily composed of single detached dwellings. By nature, semi-detached lots are smaller than single detached lots. The proposed lots will be different than what exists currently. In addition, the proposed density will be higher than the single detached lots in the area. However, the six-plex across the road from the subject property is significantly higher in density (1 unit per 128 m2 versus the subject site which would be 1 unit per 222.97 m2). In addition, the two triplexes in the area are of similar unit density. Notwithstanding other examples, staff is of the opinion that while the proposed use is denser than most properties in the area, the proposed use 5 3-5 is compatible, especially since required minimum yards and maximum building height will be maintained in accordance with the standards of the R-3 Zone. 6. Where will the children and pets play? An adequately sized rear yard of 55 m2 (591 sq.ft.) will be provided for each semi- detached house and will act as an amenity space. 7. The increased density means a lack of privacy for neighbouring properties The subject lands currently contain one single detached dwelling and a vacant lot. It is staff's opinion that the lands are significantly underutilized. The proposed zone change will facilitate development that is denser, as aforementioned. Increases in density are often perceived as losses of privacy. It should be noted however, that the existing dwelling at 439 Bridgeport Road is approximately 1.6 metres from the neighbouring property line to the west, while the proposed zoning would require semi-detached dwellings to be located 7.5 metres from the same lot line. In addition, the accessory building at 439 Bridgeport (proposed to be demolished), is slightly closer to the southerly property line than the required setback forfuture semi-detached dwellings. 8. The proposal may create a student environment and decrease property values The City does not regulate what persons or people groups may live in a certain area. Rather, the City's specific Official Plan objective for this area is to accommodate a full range of housing types, mixing and integrating different forms of low intensity housing in order to provide housing for people of all groups. The City's objective is to allow a range and mix of dwelling types, not to regulate property values. Department and Agency Circulation Comments As a result of the circulation of this application, thirteen written comments were received from departments and agencies, twelve of which stated no concerns or communicated comments that are pertinent to the future severance application, not the subject application (see Appendix "E"}. The Region communicated comments regarding noise mitigation, some of which are discussed in the Proposed Special Regulation Provision section, and some of which will be dealt with at the time of severance. ALIGNMENT WITH CITY OF KITCHENER STRATEGIC PLAN: This proposal aligns with the Kitchener Strategic Plan since it implements the community priority Development by allowing intensification that is consistent with Provincial, Regional, and City planning policies. FINANCIAL IMPLICATIONS: No new or additional capital budget requests are expected with this recommendation. COMMUNITY ENGAGEMENT: Preliminary circulation of the Zone Change Application was undertaken on March 13, 2012 to all applicable departments and agencies and to all property owners within 120 metres of the subject lands. As a result of the preliminary circulation, staff received six responses from the community (see Appendix "F"). The property owners who provided written comment will be mailed a courtesy letter including information about how to obtain a copy of the staff report (see Appendix "D"). 6 3-6 Notice of the June 18, 2012 Planning and Strategic Initiatives Committee Meeting (public meeting) will be advertised in The Record on May 25, 2012 (see Appendix "C"). Both the advertisement and the courtesy letter included details of the public meeting. CONCLUSION: Planning staff is of the opinion that the proposed zone change to permit semi-detached dwellings with customized zoning regulations represents an excellent opportunity to allow redevelopment of an underutilized property. The proposed zoning would allow for appropriate intensification and help to achieve a greater mix of uses in an established low-rise neighbourhood. The proposal conforms to the policies of the Official Plan and Provincial legislation. REVIEWED BY: Della Ross, Manager of Development Review Jeff INillmer, Deputy CAO ACKNOWLEDGED BY: Community Services Department Atta~hmPntc• Appendix "A" Appendix "B" Appendix "C" Appendix "D" Appendix "E" Appendix "F" -Proposed Zoning By-law including Map No. 1, dated May 10, 2012 -Concept Plan provided with Zone Change Application -Newspaper Advertisement -Courtesy Letter (May 22, 2012) - DepartmentlAgency Comments -Community Circulation Comments 7 3-7 PROPOSED BY-LAW May 10, 2012 BY-LAW N U M B E R OF THE CORPORATION OF THE CITY OF KITCHENER (Being a by-law to amend By-law 85-1, as amended, known as the Zoning By-law of the City of Kitchener - DavidJulien -Lots 3 and 4, Plan 674) WHEREAS it is deemed expedient to amend By-law 85-1; NOW THEREFORE the Council of The Corporation of the City of Kitchener enacts as follows: 1. Schedule No. 80 of Appendix "A" to By-law Number 85-1 is hereby amended by changing the zoning applicable to the parcel of land specified and illustrated as the Subject Area on Map No. 1, in the City of Kitchener, attached hereto, from Residential Three Zone (R-3) to Residential Four Zone (R-4) with Special Regulation Provision 629R. 2. Schedule No. 80 of Appendix "A" to By-law Number 85-1 is hereby further amended by incorporating additional zone boundaries as shown on Map No. 1 attached hereto. 3. Appendix "D" to By-law 85-1 is hereby amended by adding Section 629 thereto as follows: "629. Notwithstanding Sections 4.2, 5.24, and 38.2.2 of this By-law, within the lands zoned R-9 on Schedule 80 of Appendix "A", the following special regulations shall apply: i) For semi-detached dwelling, the minimum lot area shall be 222.97 square metres for each semi-detached house; ii) For semi-detached dwelling, the minimum lot width shall be 7.32 metres for each semi-detached house; iii) For semi-detached dwelling, the minimum corner lot width shall be 19.51 metres for each dwelling and 12.19 metres for each semi- detached house; 3-8 iv) Asemi-detached house may contain a maximum of one dwelling unit; v) The minimum setback for asemi-detached dwelling or part thereof, located on a lot which abuts Bridgeport Road, shall be 5.7 metres; vi) Asemi-detached dwelling shall be constructed with the following features in accordance with the approved noise assessment report entitled Noise Impact Study, Development of 439 Bridgeport Road East, Kitchener, Ontario, dated January 13, 2012 and the associated Noise Impact Study Addendum, dated February 21, 2012, both prepared by Conestoga-Rovers and Associates: a. a forced air ducted heating system suitably sized, designed for, and fitted with a central air conditioning system, b. double-glazed windows (minimum 3mm panes, with 3mm air space), and c. acoustical door and window seals; and vii) Asemi-detached dwelling or part thereof located within 12.19 metres of Bridgeport Road shall be constructed along with a 2.25 metre high noise attenuation wall, in accordance with the approved noise assessment report entitled Noise Impact Study, Development of 439 Bridgeport Road East, Kitchener, Ontario, dated January 13, 2012 and the associated Noise Impact Study Addendum, dated February 21, 2012, both prepared by Conestoga-Rovers and Associates." PASSED at the Council Chambers in the City of Kitchener this day of 2012. 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The public meeting will be held by the Planning & Strategic Initiatives Committee, a Committee of Council which deals with planning matters on: MONDAY, JUNE 18, 2012 at7:00 P.M. COUNCIL CHAMBERS, 2nd FLOOR, CITY HALL 200 KING STREET WEST, KITCHENER. Any person may attend the Public Meeting and make written andlor verbal representation either in support of, or in opposition to, the above noted proposal. If a person or public body that files a notice of appeal of a decision does not make oral submissions at this public meeting or make a written submission prior to approvallrefusal of this proposal, the Ontario Municipal Board may dismiss all or part of a subsequent appeal. ADDITIONAL INFORMATION is available by contacting the appropriate staff person noted below, viewing the report contained in the meeting agenda (available at www.kitchener.ca on the Wednesday evening prior to the meeting - click on the meeting date in the Calendar of Events), or in person at the Planning Division, 6th Floor, City Hall, 200 King Street West, Kitchener between 8:30 a.m. - 5:00 p.m. (Monday to Friday). Andrew Pinnell, Title - 519-741-2668 (TTY: 1-866-969-9994), andrew.pinnell ,kitchener.ca 3-12 1 Andrew Pinnell Planner CSD -Planning Division Kitchener City Hall, 6th Floor 200 King Street ~Xlest, P.O. Box 1118 Kitchener ON N2G 4G7 Phone: 519.741.2668 Fax: 519.741.2624 TTY: 1.866.969.9994 andrew pinnell@ktchener. ca May 22, 2012 Dear Property OwnerlAgency: Re: Modification to Zone Change Application ZC121041BIAP 439 Bridgeport Road David Julien CSD-12-090 As outlined in my letter of March 13, 2012, the City of Kitchener has received a development application from the owner of 439 Bridgeport Road to change the zoning of the subject property from Residential Three Zone (R-3) to Residential Four Zone (R-4) with a Special Regulation Provision. The property is located on the south side of Bridgeport Road, between Lancaster Street West and the Highway 85 on/off ramp and contains a single detached dwelling. The subject property is shown on the map below. The purpose of the proposed zone change is to allow the future construction of three semi- detached dwellings with frontage on Leander Place. Approval of a severance application would be required in order to create the lots that would accommodate each semi-detached house, should the zone change be approved. In addition, approval of a demolition control application would be required to allow the proposed redevelopment. The existing R-3 Zone allows the following uses: coach house dwelling unit, duplex dwelling, home business, private home day care, residential care facility, and single detached dwelling. The proposed R-4 Zone allows all of the above R-3 uses as well as semi-detached dwelling. 3-13 Further to the original proposal the applicant has now requested to modify the Special Regulation Provision content. The purpose of the zone change request is now to change the zoning from Residential Three Zone (R-3) to Residential Four Zone (R-4) with the following Special Regulation Provision for semi-detached dwellings: ^ minimum lot area of 222.97 square metres ^ minimum lot width of 7.32 metres ^ minimum setback from an arterial road of 5.7 metres ^ minimum corner lot width of 19.51 metres, and the minimum corner lot width fora semi- detached house of 12.19 metres ^ Limit semi-detached houses to 1 unit ^ Requirement forthe following noise mitigation measures for semi-detached dwellings: ^ fitted with forced air ducted heating system suitably sized, designed for, and fitted with a central air conditioning system ^ double-glazed windows ^ acoustical door and window seals ^ Requirement fora 2.25 metre high noise barrier for the semi-detached house nearest Bridgeport Road This item has been scheduled for the Planning & Strategic Initiatives Committee on Monday, June 18, 2012 commencing at 7:00 p.m. in the Council Chambers, 2nd Floor, City Hall, 200 King Street West, Kitchener. To view the report in full, please see the agenda on City's website (available at wuuw.kitchener.ca on the Wednesday evening prior to the meeting -click on the meeting date in the Calendar of Events) and view details for the Planning & Strategic Initiatives Committee. If you have questions of a technical nature related to this matter, please contact the undersigned at 519-741-2668. If a person or public body does not make oral submissions at the public meeting or make written submissions to the City priorto the approval of the zoning by-law, the Ontario Municipal Board may dismiss an appeal made in relation to the zone change application. Anyone wishing to submit a written response to the Committee, to appear as a delegation at this meeting or to obtain advice regarding the meeting procedure, please contact our Legislative Services Division at 519-741-2203. Please note that the report prepared by staff is a recommendation only. Any final decision on this matter will be made by City Council. Council would normally act on a recommendation of this committee at their next scheduled meeting on Monday, June 25, 2012. To confirm that the matter is to be addressed at this meeting, please refer to the City's website (www.kitchener.ca) or contact the Legislative Services Division at 519-741-2203. Sincerely, Andrew Pinnell, MCIP, RPP Planner cc: Councillor Scott Davey, Ward 1 2 3-14 1 f 'mow 3 i ^ ~ . ~ 3 3 i i L L a 1 ~ ~ ~ y/ 0 a o n o ~ r~U~~ c pT] ~~ L ~ C; tL .j ~ ~ nn~ ~ ~ ~ ~ CL C3] ~] L ~ a aU•`~ cm's ro ~ a 4J (~ ~ U ~ ~ ~ ff1 U L ~ ' ~' [l. v1 ~ ~ ~ a (6 ~ ~ ~ o ~" a~ ~ ~ ~ ~? o U ~1 .n ~ ~~ ~ c ~ a~ • ~ s ~ ~ ~ ~ ~-~ao ~ 4 ~ ~ t~ s.. ~ ~ ~~~ m~ pa ~ ~ ~ , ~, ~ p ~ U ~ ~ ~ { ~ 0.1 ~ A,. ~ QS I.u {,~ tD ' ~ Q ~ ~ ~ ~ 4 ~-, ~ Q Z '~ ~ ~- ~ ~ ~ ~ h 'p ~ ~ ~ ~ ~ ~- ~ '~- ~ ~•~ ~ ~' ~ ~ ~ ~ ( S ~ cn ~ ~ 5'" ~ ~ U ro ~ aa~or~aL C _" s ~ ~ d7 ~ ~ ~ ~ ~ ~ tp . t ~ ~ .. 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C ~ ~ m ©~ LJ ~ ti ~ ~ u3 '"~ d ~ fx.~ .N ~ 'tp ~~~ x ~ 41 ~ ~ ate. .~~-~~ ~ ~ ~` Q1 C UYoa~i ~ ~ °~ ~ ~ ~"" C3 ~- u fi ]+ C7 I Q7 ~ ~ ~ C~ v` ~1 !J) I- 'w W ~ . ~ °'~ `~ ~ ~ C ~ Q3 t{3 ~ ~ ~ W u ©~ ~ p"41 ` ~~ +-' ~. Ct .a~~a. -rn~~. ~ ~ ~ ~ ~. k=- c a~ Q c} ~. ° ~ ~ "~ ~ ~ ~ ~~~~ a~ ~ m ~ ~ n~ o ~~~~ ;, ~ o ~ ~ ca. ~, x ~~~ ~ ~~~ ~ ~ c ~ ' ~ ~- ~ ~ m ~ ~ o~~~ -~ v ~ t. ~ ~ ~ ~ ~ ~ ai ~ .~ ~ ' Cv ~ ~~,~~ ~ ~ ~ :W ~'~'c ~ ~ ~ ~ ~ ~ ~ ~~ m~ ~maM ~ ~s u a ~c'.°~~ 4, ~ ~ ~ I~ ~'\~ t~ J ~ f'ti 3-25 =3 2 a T ;~ ~ ~~~. ~ ,~ J ~ C 4 " ~, _ r4 ~ ~' F R 4 `c ~~~~ ~ {{. I I i I ' i j I I i ~ ~ ~.. c ~~~~;~a 41 C ~ ..~: G7, ^ 81 •i. C ~ ~ C ~, r ~ V `~ p ~' (Y} '"` ~~ ,i'~ O u] ~ hl h G' & . C~W 'J ~. "t'f ~ I ~ Q d CJ J +.1 ~i \. f j y I ~~~ ~ ~ ~ _... ~ t ~ ~ ~ti ~~• -..~ -' ~~ ~ ~ . ~~ ~ •J I I I ~; I ~ U Q M1t G G~ +`~ ~. D a ~Q r4r^^ V! CL .~ .~ '~ ~ I N I I i t } 1 \~, j ~ 1 s ~. i I ~ ~ ~I 3 I ' ~4? ~ T ^~N~ ~1 .Sf~ ,~ ~:~ ~_ ~~ ~. 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