TWINNING LIGHT PROJECT FICHE1.3 Twinning Number: BA11 IB AG 01 TWL
1.4 Title: Support to enhancing export potential of agricultural and food products to the EU
1.5 Sector: Agriculture
2. Objectives
2.1 Overall Objective
The overall objective of this project is to contribute to ensuring a high level of public and
animal health protection, protection of consumer interests and removing trade barriers with
the EU and countries in the region.
2.2 Project purpose
Increased capacity of institutions for the implementation of official controls on food and feed
safety and quality, animal health and public health in line with EU standards and technical
requirements and improved competitiveness of food business operators (FBO) for export of
agricultural and food products to the EU.
2.3 Contribution to National Development Plan/Cooperation agreement/Association
Agreement/Action Plan
The Progress Report 2013 for BiH, issued by the European Commission in October 2013,
states the following:
As regards food safety, implementing legislation on nutrition labelling, infant formulae and
novel food was adopted.
As regards the placing on the market of food and feed, Bosnia and Herzegovina adopted new
legal provisions on hygiene rules for food and feed establishments and microbiological
criteria for foodstuffs. Residue monitoring plans for honey, dairy, poultry and eggs were
positively evaluated by the European Commission, thus allowing export of honey from
Bosnia and Herzegovina into the European Union.
Clarification of the chain of command and removal of overlaps within the official food and
feed control system remain a key priority. Legislation at State-level is neither adopted nor
implemented at Entity level. The capacity to implement official controls is weak. Systems to
ensure an exchange of information on official controls among relevant authorities and central
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authorities are not adequate. A strategy on laboratory capacity to cover analysis of samples in
line with official controls on food and feed chains still needs to be drawn up. As a temporary
measure, a political agreement was signed between the Ministry of Foreign Trade and
Economic Relations, the Ministry of Agriculture Forestry and Water Management of
Republika Srpska and the Ministry of Agriculture, Water Management and Forestry of the
Federation ‘on the establishment of a chain of command meeting EU requirements for
exports of milk and milk products from Bosnia and Herzegovina to the EU‘, which is a key
EU import requirement. The full implementation of this Protocol is still pending. Training
was started in EU hygiene rules for staff of relevant authorities and food business operators.
Checks and registration of milk farms were stepped up to ensure compliance with EU
requirements. Implementing legislation was adopted to allow the State Veterinary Office to
check and approve establishments for export to the EU, but implementation has not started.
The regulatory framework for the control of import of food of non-animal origin requires
upgrading.
In the veterinary sector, implementing legislation was adopted on movement of pets and
control of animal diseases, including bovine spongiform encephalopathy and zoonoses
(salmonella). Vaccinations against brucellosis and rabies are conducted regularly. The
existing legal framework for animal health requires upgrading. Deficiencies in the existing
animal identification and movement control system do not allow proper implementation of
animal health measures or their planning. The national system for the management of animal
by-products needs to be upgraded to comply with EU requirements. More efforts are needed
in the veterinary sector to implement measures to meet EU import requirements.
Overall, there was little progress in the fields of agriculture and rural development, food
safety, veterinary, phytosanitary policy and fisheries. A countrywide rural development
strategy has not yet been adopted. State-level capacity for coordination and harmonisation
needs strengthening. Agricultural statistics and the information system still need to be
improved. Improving the productivity and competitiveness is being hampered by the lack of
an efficient administration and effective rural credit schemes. Implementation of the food
safety and veterinary acquis remained uneven and official control capacity needs to be
upgraded. Preparations in these areas of the acquis are at an early stage.’
2.4 Link with National Development Plan
Not applicable
2.5 Link with national/sectoral investment plans
The “Road Map aimed at Creating Conditions for the Export of Products of Animal and Plant
Origin“ was adopted by the Council of Ministers of BiH in August 2010. This document aims
to:
- Define the requirements of generally accepted international and EU requirements for
exports of agricultural and food products - food
- Analyse the progress achieved in BiH to fulfil these requirements and the
requirements of EU food trade, and define problems in exporting food from BiH,
- Propose steps to address them
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3.1 Background and justification
BiH, according to the SAA, has an obligation to harmonize food safety and veterinary
legislation in order to comply with relevant EU legislation.
Croatia was one of the main BiH trading partners and export markets for agricultural products
prior to its accession to the EU. As of the accession of Croatia on 1 st July 2013, BiH is able to
export to Croatia fish and honey, the only two products for which BiH currently meets
conditions for export to the EU.
The conclusions of the FVO audit for poultry meat, poultry meat products and table eggs that
took place in February 2012 regarding the control system remain valid and can be reviewed
at the following link: http://ec.europa.eu/food/fvo/rep_details_en.cfm?rep_id=2906 . The
FVO audit in order to evaluate the controls over the production and processing of dairy
products intended for export to the EU took place in January 2014. The MS partners will
have access to the report and action plan from this FVO mission (see footnotes 3 and 4 on
page 7).
In the recent period, however, steps were taken by BiH to commence the revision of the
primary legislation, i.e. the Food Law, Veterinary Law and the Law on Agriculture, Food and
Rural Development. The revision of these laws has been identified as an urgent priority in
order to most importantly establish an EU-compliant official control framework. The
legislative activities are supported by the EU through its TAIEX instrument. As a temporary
measure, the BiH authorities 1 have signed a Protocol on establishing of command chain
meeting the requirements for export of milk and milk products originating from BiH to the
EU, in accordance with Article 4 of Regulation 605/2010. The Protocol and its annexes,
including the cooperation agreements with the local authorities in charge of veterinary
inspection, assigns responsibility to the State Veterinary Office over the veterinary inspectors
from local authorities that conduct official controls at export facilities. The State Veterinary
Office is able to determine the tasks and actions to be conducted to verify the meeting of the
requirements confirmed on the export certificate and to conduct regular supervision over the
work of the veterinary inspectors. The Protocol will remain in force until adoption of
amendments to the Food Law, Veterinary Law and the Law on Agriculture, Food and Rural
Development. This official control framework using service contracts i.e. cooperation
agreement between the official agencies and the central competent authority is partly based
on the model used in Ireland.
One of the key findings of previous FVO or TAIEX missions in the recent period is also the
lack of knowledge on specific EU requirements in the different food sectors. For example,
the FVO audit on poultry products and table eggs cited limited knowledge on EU Salmonella
National Control Plan requirements of Competent Authority staff and farm operators. A
recent TAIEX peer review of honey establishments in BiH, recommended that local
veterinarians must intensify their knowledge concerning the standards of the Directive
2001/110/EC and other directives and regulations in this subject, the hygiene requirements,
principles of a functioning HACCP. A conclusion of another TAIEX mission on the
establishment of an horizontal and vertical audit plan emphasised that a prerequisite for
success will be the training of staff conducting audits of official controls, on how to
1 The Protocol was signed between the Ministry of Foreign Trade and Economic Relations BiH and the Entity
Ministries of Agriculture.
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competently perform them, and also for the audited organisations, on how to prepare for
them.
There are other issues with the food and feed control framework in Bosnia and Herzegovina,
and they include the following:
Absence of Multi-annual Plan of Official Controls at level of Federation of Bosnia
and Herzegovina, Republic of Srpska and Brcko District BiH in coordination with other
competent authorities, which would contain information about the structure and
organization of official controls on food, feed, animal health and welfare, plant health,
and set goals and priorities of control activities during the specified time period of the
implementation. However, above mentioned plans should be defined at level of
Federation of Bosnia and Herzegovina, Republic of Srpska and Brcko District BiH, and
in mutual coordination.
Insufficient coordination in some cases leads to duplication of legislation and
overlapping of competences between different authorities - it is very important to
ensure effective and efficient coordination of all competent authorities at all levels,
bearing in mind the complex structure of competent authorities involved in the context
of official controls.
Lack of responsibilities of food business operators - EU legislation requires a new
approach, including risk based official controls and responsibilities of food business
operators, who are required to ensure safe food and therefore to be informed and
trained.
Lack of capacities in respect of authorized/reference laboratories and for official
testing of presence of residues, microbiological and other contamination of food and
feed, GMO food and feed - some important laboratory equipment has been purchased
but methods are not developed and validated due to the lack of training of laboratory
staff. Because of that, official controls and control duties cannot be carried out
efficiently and effectively, as envisaged by Regulations No EC 882/04 and No
2073/2005.
Lack of educated and accredited FBOs that are able to export agricultural and food
products to EU after 2012 is the most serious issue that impacts BiH trade balance.
Therefore, it is of crucial importance to educate FBO in order to increase their
competitiveness at EU market.
This twinning light project is to additionally support the implementation of the TAIEX
Action Plan via additional training of the competent authorities of Bosnia and Herzegovina,
Federation BiH, Republic of Srpska and Brcko district BiH and food business operators in
implementation of the EU requirements in particular related to food safety in the food and
feed sectors, in particular the milk, dairy and poultry products sectors, in those establishments
which wish to export their products to the EU. Standards related to other commodities may
be added if needed.
Training represents a key element in assuring that all personnel involved in guaranteeing the
placing on the market of safe food are aware of their role, responsibilities and the tasks that
they should carry out. This means that training is essential for the competent authorities
responsible for official control and they should know what to do, when and how. This also
applies to the FBO, who is responsible for the safety of the final product that is placed on the
market.
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A comprehensive training and support programme could thus be designed, focused on the
following general topics applied to the official control:
Legislation in EU (chapter 12)
Role of the competent authority, control plans, coordination and planning of the official
control, risk based checks
Inspecting activity, audits, documentary, identity and physical checks, sampling
In particular, the twinning light project will provide the training on the following:
- For the competent authorities carrying out official controls: How to carry out official
control according to the requirements of REG (EC) 882 and 854/2004 and other relevant
legislation in force, including the carrying out of general and specific audits for relevant
competent authorities. Annex II, Chapter I, of the abovementioned regulation contains a list
of subject matters to be addressed e.g. different control techniques, legislation, hazards and
official certification system.
- For the Food Business Operators interested to export to the EU: Key issues
highlighted in the food hygiene package (HACCP, GHP, GMP, traceability) and other relevant
legislation in force.
3.2 Linked activities (other international and national initiatives):
The EU has assisted this sector through TAIEX in the recent period by implementing series
of expert missions as part of the Action Plan as regards the establishment of horizontal
official control frame for the feed and food chain in BiH in accordance with Reg. (EC)
882/2004. The TAIEX Action Plan contains ten basic actions which continue to be
implemented:
1. Identify eventual gaps, overlaps or deficiencies of current BiH legislation with the EU
Acquis and rectify if necessary for: Regulation (EC) 882/2004, Directives 89/608/EEC,
89/662/EEC, 90/425/EEC, 91/496/EEC and Directives 97/78/EC 96/93/EC
2. Identify eventual gaps, overlaps or deficiencies of current BiH legislation with the EU
Acquis and rectify if necessary for: Regulations (EC) 178/2002 (Food Law), 852/2004 (Food
Hygiene -Operators), 853/2004 (Veterinary Food Hygiene), 854/2004 (Veterinary Food
Supervision) and 183/2005 (Feed Hygiene)
3. Preparation of graph of the official control system of B&H at all levels including
areas of competence
4. Establish a central database for the official control system
5. Prepare horizontal and vertical audit plan
6. Prepare laboratory strategy for testing of samples taken in the context of official
controls of the feed and food chain
7. Prepare communication strategy as laid down by Regulation (EC) 882/2004, article 7
8. Peer assessment system concerning approval of establishments for export to the EU
9. Check import control system as regards feeding stuffs and food of non-animal origin
10. Reorganisation of official control structures at all levels (medium to long-term)
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This aim of this twinning light is to additionally support the implementation of the TAIEX
Action Plan, in particular points 5, 8, and 9.
3.3 Results
Result 1
Competent Authorities of BiH, Republic of Srpska, Federation BiH and Brcko district BiH
including Inspectors and other control authorities trained to carry out official controls in line
with the EU acquis.
Result 2
Increased number of the Food Business Operators capable to meet the safety and quality
requirements prescribed by the EU acquis which are qualified for the export of agricultural
and food products in the EU.
3.4 Activities 2
Overall, 200 man/working days of MS experts are foreseen for implementation of this
project.
Activity 1
This activity will consist of trainings and seminars for the FBOs that intend to export to the
EU their products (focus on food of animal origin). The list and the schedule of trainings of
FBOs to be trained will be drawn by the Food Safety Agency of BiH and State Veterinary
Office of BiH the Ministry of Agriculture, Forestry, Water Management RS, the Ministry of
Agriculture, Water Management and Forestry FBiH and the Department of Agriculture of
Brcko District jointly with the twinning partner in the first month of the project (joint working
group to be established).
Although the exact format of the training will be decided in the first month of the project, it is
suggested that the trainings take the form of a ‘peer review’ and that are conducted on the spot
in selected establishments, with participation of the relevant Competent Authorities in in
charge for such topics. The peer assessments should result in recommendations for FBOs and
the Competent Authorities. The applicant is expected to propose the best modality for the
trainings in their proposal.
The FBOs should receive training on the key issues highlighted in the food hygiene package
(HACCP, GHP, GMP, traceability) and other relevant legislation and issues specific to the
particular commodity.
The activity will also involve assistance in preparation of guideline or rulebook for
implementation of relevant standards.
This activity will require the overall involvement of an indicative 50 man/working days
of MS experts
Working language during trainings is English, but translation to one of the local languages
shall be foreseen due to the complexity of the topics.
Activity 2
2 See footnote no 4, the last sentence in particular.
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This activity will consist of trainings and seminars for the Competent Authorities of Bosnia
and Herzegovina, Federation BiH, Republic of Srpska and Brcko district BiH (CAs) in charge
for proper functioning of food and feed safety and quality system. The training is aimed train
the CAs on carrying out official control according to the requirements of REG (EC) 882 and
854/2004. Annex II, Chapter I, of the abovementioned regulation contains a list of subject
matters to be addressed e.g. different control techniques, legislation, hazards and official
certification system.
The activity will also include the preparation of the draft procedures for audit of official
controls, an initial list of auditors and guidance for official controls. The training should also
include a component on carrying out of general and specific audits for relevant competent
authorities. The applicant is expected to propose the best modality for the trainings in their
proposal.
This activity will consist of trainings and seminars for an overall involvement of an
indicative 60 man/working days of MS experts
Working language during trainings is English, but translation to one of the local languages
shall be foreseen due to the complexity of the topics.
Activity 3
1. Support to the Competent Authorities in follow-up and implementation of the Action Plan
resulting from the mission of the Food and Veterinary Office in order to evaluate the
controls over the production and processing of dairy products intended for export to the
EU conducted in Bosnia and Herzegovina from January 21 to 31st, 2014. 3
This activity will consist of trainings and seminars 4 for an overall involvement of an
indicative 40 man/working days of MS experts
Activity 4
This activity will assist the Beneficiary Country administration with provision of advice in
implementation of EU legislation regarding the official food and feed control system
including controls on genetically modified food and feed, in particular as regards the import
control system and internal market controls in accordance to Commission Regulations
882/04, 669/2009 for food and feeding stuffs of non animal origin.
3 Once consolidated and not earlier than in at least two months' time after the mission, the final report will be
distributed to all EU Member States and the European Parliament for their information and published on the
Health and Consumer Protection Directorate General web-site at: http://ec.europa.eu/food/fvo/index_en.cfm.
4 A detailed work plan will be developed once the availability of the FVO mission report is made and together/in
close consultations with the joint working group of the project beneficiaries mentioned under Activity 1.
In case that applicants find the above mission report available at the time of the proposal preparations, they may
propose the tentative outline of the specific trainings and seminars, which will be further considered and
upgraded/adjusted with the beneficiary institutions via the above-mentioned Working group at the
implementation stage.
As for preparations and design of the rest of detailed work plans under all other activities (1, 2 and 4), close
consultations and work with the above mentioned Working group is to be ensured.
Activity will also include specific trainings for competent authorities of Bosnia and
Herzegovina, Federation BiH, Republic of Srpska and Brcko District BiH (CAs) related to
control checks in field of food and feed of non-animal origin, including control of pesticide
residues, contaminants and GM food and feed.
This activity will consist of trainings and seminars for an overall involvement of an
indicative 50 man/working days of MS experts.
3.5 Means/ Input from the MS Partner Administration
The experts required must be civil/public servants of the relevant MS administration or staff
of its authorised mandated bodies.
In the framework of the twinning light project, one Twinning Light Project Leader is envisaged
to be supported by pool of short-term experts.
3.5.1 Profile and tasks of the Project Leader
The MS Project Leader should fulfil the following criteria:
He/she must have university education in veterinary medicine, food technology or a relevant
degree:
at least 10 years of experience in veterinary and food and feed safety issues
proven team leading experience (participation as project leader or equivalent position in
minimum 2 projects related to the subject of this twinning light project)
good knowledge and understanding of Twinning Projects in Member States, candidate
or potential candidate countries, countries of the European Neighbourhood
excellent command of English is required (spoken, written)
3.5.2 Profile and tasks of the short-term experts
The pool of Short-term experts (STE) to support the MS PL should indicatively comprise 4
STEs and should ideally include the following expertise:
STE 1
Minimum 3 years' experience in the implementation of food and feed control systems
and legislation in the EU acquis in veterinary and food and feed safety and quality
areas
experience in implementation of training programmes for officials working within
competent authorities
Minimum 3 years' experience in implementation of official controls, inspections and
audits of official controls
implementation of risk-based assessment
experience in implementation of training programmes on official controls and audit
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Minimum 3 years' experience in the implementation of self-control systems (HACCP,
GHP) and traceability
STE 4
Minimum 3 years' experience in official control and inspections of import on food of
non-animal origin and implementation of non-animal food and feed safety and quality
standards
PC and projector
Telephone
Fax
Venue and equipment for the seminars, trainings, and other possible project
activities and events
Necessary staff input
3.5.4 Working languages (for activities)
Activities involving MS experts and reporting shall be carried out in English. Translation of
mentioned documents into one of official languages in Bosnia and Herzegovina should be
provided.
Trainings and seminars may be carried out in English and in one of the local languages. The
MS with the assistance of BC Project leader will ensure that the necessary translation and
interpretation services are provided, and their cost will be covered by the project’s budget.
4. Institutional Framework
In BiH, the competencies in the field of agriculture are at the level of the Federation of BiH
(FBIH), Republika Srpska (RS) and District Brcko governments. The Ministry of
Agriculture, Forestry, Water Management RS, the Ministry of Agriculture, Water
Management and Forestry FBiH and the Department of Agriculture, Forestry, and Water
Management of Brcko District of BiH are responsible for creation and implementation of
agricultural and rural development policies. At country-level, the Ministry of Foreign Trade
and Economic Relations of BIH (MoFTER) is responsible for export policy and
communication with relevant international bodies.
In the area of food / feed area, beside above-mentioned ministries, the other relevant agencies
are as follows:
Food Safety Agency of BiH
Veterinary Office of Bosnia and Herzegovina (VO BIH), including the Veterinary
Border Inspection, within MoFTER BiH
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Cantonal, Municipality and City Inspection;
Inspectorate of Brcko District;
5. Budget
The total IPA budget for the twinning contract will be 250,000 Euro
Title: Support to enhancing export potential of
agricultural and food products to the EU
IPA
Community
Contribution
National
Co-financing
TOTAL
The co-financing requirement foreseen under IPA will be considered fulfilled according to the
provision of the relevant Financing Agreement.
6. Implementation Arrangements
Preparation of inception report is anticipated after two months of project implementation
(presented in the third month) and a final report (templates and requirements same as for
standard Twinning). Reports in English will be presented in electronic version and in hard
copies with signatures of Project Leaders. For the purpose of efficient project coordination,
the Steering Committee will be established by representatives from:
- Food Safety Agency of BiH
- State Veterinary Office of BiH
- Ministry of Agriculture, Forestry, Water Management RS
- Ministry of Agriculture, Water Management and Forestry FBiH
- Department of Agriculture, Forestry, and Water Management of Brcko District of
BiH
- FBiH Inspection Administration;
- RS Inspection Administration;
The Steering Committee (meeting on a quarterly basis) shall meet two times during the
contract duration period, in order to discuss and approve of reports presented by the project
partners and decide about the schedule of training and achievement of project objectives.
6.1 Implementing Agency responsible for tendering, contracting and accounting
Delegation of the European Union
Skenderija 3a
Programme Manager for Agriculture and Rural Development, Food Safety, Veterinary and
Phytosanitary Policies
E-mail: maja.dosenovic@eeas.europa.eu
Dzemil Hajric
E-mail: hajric@fsa.gov.ba
Ljubomir Kalaba, Director
7. Implementation Schedule (indicative)
7.2 Start of project activities: Quarter 2, 2014
7.3 Project completion: Quarter 4, 2014
7.4 Duration of the execution period (number of months): 6 months
8. Project impact, sustainability and cross border impact
8.1 Project impact
8.2 Sustainability
The training of the staff involved in official controls of food and feed and the food business
operators (FBOs) is a considerable effort in improving the food and feed control system in
BiH and this benefit shall endure well beyond the project timeframe.
8.3 Cross border impact
9. Crosscutting issues (equal opportunity, environment, etc…)
9.1 Equal Opportunity
The project documents and outputs will be systematically developed in order to promote
diverse workplace. Terms of References for experts will be based exclusively on possession of
relevant skills to ensure effective mainstreaming of gender and ethnic equality and inclusion.
Participation in the project activities will be guaranteed on the basis of equal access regardless
of racial or ethnic origin, religion or belief, disability, sex or sexual orientation.
9.2 Environment
The application of European standards and requirements to Bosnia and Herzegovina will
include measures for enhancement of environmental protection in the veterinary sector and the
food sector.
9.3 Minorities
The project will promote participation of minorities in all the activities.
10. Conditionality and sequencing
The sequence of the different activities is indicated in the timetable.
ANNEXES TO PROJECT FICHE
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ANNEX 1: Logical framework matrix in standard format
LOGFRAME PLANNING MATRIX FOR Project Fiche Programme name and number: IPA
National Programme 2011 part II –
Bosnia and Herzegovina
Project: Support to enhancing export potential of agricultural and food
products to the EU
The overall objective of this project is
to contribute to ensuring a high level of
public and animal health protection,
protection of consumer interests and
removing trade barriers with the EU
and countries in the region.
1. Increased food export from BiH to
EU countries
related health hazards
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Increased capacity of institutions for
the implementation of official controls on food and feed safety and quality,
animal health and public health in line
with EU standards and technical
requirements and improved
agricultural and food products to the
EU.
conducted and recorded in line with
EU requirements
systems based on HACCP
Reports of Competent Authorities
Result 1
capable to perform official controls in
line with the EU acquis.
Result 2
1.1 A number of officials from the
relevant competent authorities are
requirements of REG (EC) 882 and
854/2004.
auditors and guidance for official
controls. The training should also
include a component on carrying out of
general and specific audits for relevant
competent authorities.
CA Reports
quarantine harmful
agricultural and food products in the
EU.
resulting from the Food and Veterinary
Office audit mission on milk and dairy
products are implemented
implementation of control checks in
the field of food and feed of non-
animal origin, including GM food and
feed.
hygiene package (HACCP, GHP,
legislation and issues specific to the
particular commodity.
cooperation between
FBOs that intend to export to the
EU their products (focus on food of
animal origin)
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Competent Authorities of Bosnia
and Herzegovina, Federation BiH,
district BiH (CAs) in charge for
proper functioning of food and feed
safety and quality system.
Authorities in follow-up and
resulting from the mission of the
Food and Veterinary Office in
order to evaluate the controls over
the production and processing of
dairy products intended for export
to the EU, conducted in Bosnia and
Herzegovina from January 21 to
31st, 2014.
implementation of EU legislation
control system including controls
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import control system and internal
market controls in accordance to
Commission Regulations 882/04,
stuffs of non-animal origin.