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NationalAgricultural
DataInfrastructure
APolicyGuide
Contents\iii
Contents
Acknowledgmentsvii
ExecutiveSummaryix
1.OpportunitiesandChallengesoftheAgriculturalSector
intheDataEconomy1
1.1TheImportanceoftheDataEconomytotheAgriculturalSector1
1.2TheChallengeofDataManagement2
1.3PurposeandStructureoftheDocument3
2.CommonInfrastructureforDatainCountries5
2.1DigitalisationofAgriculture5
2.2WhyCountriesNeedInfrastructureforData6
2.3DigitalPublicInfrastructure6
2.4TheCommonwealthIsModelofDPIanditsApproachto
AgriculturalDataManagement7
2.4.1UnderstandingthetermINationalAgricultural
DataInfrastructureI8
2.5TheProcessofValidatingtheNAgDIModel8
2.6TheNAgDIandItsComponents10
2.7RoadInfrastructureAnalogyforNAgDI11
2.7.1TarmacandBridges11
2.7.2RoadSignsandMarkings11
2.7.3EnforcementofRegulations12
2.7.4ConstructionandMaintenanceoftheInfrastructure13
2.8OverviewofNAgDIandItsInvestmentAreas16
2.8.1InvestmenttoCollateandDevelopPoliciesandPrinciplesfor
NAgDI16
2.8.2InvestmenttoEnsureIndependentGovernanceand
Administration18
2.8.3InvestmenttoAssembleTechnologiesandSystems20
2.8.4InvestmenttoDevelopMarketingandBusinessStrategy21
iv\Contents
3.TheGenericGuidetoInvestinginNAgDI24
3.1AFigurativeFive-YearGuidefortheImplementationofNAgDI24
3.1.1StrategicInterventionsTimelineinYearOne25
3.1.2StrategicInterventionsTimelineinYearTwo28
3.1.3StrategicInterventionsTimelineinYearThree29
3.1.4StrategicInterventionsTimelineinYearFour30
3.1.5StrategicInterventionsTimelineinYearFive30
4.ApproachestotheOperationalisationofNAgDI32
4.1CollaborationastheFoundationfortheImplementationofNAgDI32
4.2ExamplesofNationalUseCasesofNAgDI32
4.3AUsefulAnalogyfortheOperationalisationofNAgDIinSupportof
ServiceProviders33
4.4ExamplesofDigitalPublicGoodsandAssetsInvestments34
5.ConclusionsandRecommendations37
5.1Conclusions37
5.1.1ContinuingtheJourneyofNAgDIwithCommonwealth
Stakeholders38
5.2Recommendations38
5.2.1GuidingRecommendationsforInvestmentinPoliciesand
Principles38
5.2.2GuidingRecommendationsforInvestmentinGovernance
andAdministration39
5.2.3GuidingRecommendationsforInvestmentinTechnologies
andSystems39
5.2.4GuidingRecommendationsforInvestmentinMarketingand
Business39
References40
Thelong-termeffectofpolicyinaction
ofnationalgovernmentstomanage
theirdatawillbeaweaknationaldigital
sovereignty–thatistheinabilityof
nationalgovernmentstoexercise
theirpowerandauthoritytomakefree
decisionsaffectingtheircitizensand
businesseswithinthedigitaldomain
AdaptedfromGawen,E.etal.(2021)Digitalsovereigntyisthepowerandauthorityofanationalgovernmenttomakefreedecisionsaffectingcitizensandbusinesseswithinthedigitaldomain
Acknowledgments\vii
Acknowledgments
ThisreportwaspreparedundertheoverallguidanceofDrRuthKattumuri,SeniorDirectorintheEconomicDevelopment,TradeandInvestmentDirectorateoftheCommonwealthSecretariat.TheprojectwasledbyRajivBabooram,AdviserandHead,CommonwealthConnectivityAgendaSection.ThereportwascoordinatedbyDrBenjaminKwasiAddom,Adviser,AgricultureandFisheriesTradePolicy,
CommonwealthConnectivityAgendaandKrishanJBheenick,LeadConsultant,KnowledgeManagement,Networking&CapacityBuilding(KMNCB)Associates,Mauritius.
WewouldliketothanktheproductionteamattheCommonwealthSecretariat,RossFulton,CliveLawson,AlisonArnoldandHughGullandfortheirworkonthisreport.
Contributors:DrEdwardMorrison,Consultant,ThusoLtd,Kenya;MarvinNiiAdom
Armah,SeniorAccountManager,FarmerlineGroup,Ghana;SadmanSadek,FounderandCEO,DigitalInnovationforImpact(Dii),Bangladesh;DrMichaelWilson,Head
ofElectronicsDivision,InstituteforScientificandTechnologicalInformation(CSIR),
Ghana;TanvirQuader,SeniorSoftwareEngineer,AspiretoInnovate(A2i),Bangladesh;AnnieSingo,ICTOfficer,EGovernment,Malawi;AlickMphonda,DeputyDirector,
NationalStatisticalOffice,Malawi;DrMichaelBrown,Consultant,ThusoLtd,South
Africa;RomanMalumelo,Coordinator,DonorCommitteeinAgricultureandFood
Security(DCAFS),Malawi;RonaldKondwaniUdedi,Owner,RontoMultimedia,Malawi;
GeorgeMarechera,HeadDigitalSystemsandSolutionsforAgriculture,AGRA,Kenya;OmarBakari,Co-founder,TanzaniaDataLab,Tanzania;TuntufyeLNtaukira,Digital
GovernanceAnalyst,UnitedNationsDevelopmentProgramme(UNDP),Malawi;Dr
MartinLimbikaniMwale,LecturerinEconomics,UniversityofMalawi,Malawi;MaureenAblaAhiataku,SeniorMeteorologist,GhanaMeteorologicalAgency(GMet),Ghana;
ElizabethMNamaona,NationalDirector,CivilSocietyAgricultureNetwork(CISANET),Malawi;AmyPaul,SeniorDirectorofProfessionalServices,VitalWave,USA;inputs
fromover400participantsattheMalawi,Ghana,BangladeshandBarbadosmulti-stakeholderdialoguesandtheCommonwealthConnectivityAgendaTeam.
ExecutiveSummary\ix
ExecutiveSummary
Theambitioustargetofboostingtradeacross
theCommonwealth,intheprocessgrowintra-
CommonwealthtradetoUS$2trillionby2030
andexpandinvestmentthroughabottom-upandmember-ledapproach,remainsanenormous
hurdleforthe56membercountries.Achieving
thistargetisexpectedtoleveragethestrength
oftheCommonwealthtosupportgrowthand
createemploymentinthewakeofdecliningglobalmultilateralismandtheriseofprotectionism.Withsomuchatstake,itisnosurprisethatfoodsystemstransformationhasbeenrecognisedasacritical
pillarformostCommonwealthcountries.Yetthe
foodimportbillofCommonwealthmembersis
risingrapidly,reaching$272billionin2023,andoverthenextdecade,theCommonwealth’spopulationisprojectedtogrowbyover385million,requiringanadditional$100billioninfoodimportstomeetthisincreaseddemand(CommonwealthSecretariat,
2024a).
Againstthisbackdrop,digitalisation offoodproductionandtradecanbe agamechangerinacceleratingtheambitioustargetfortheCommonwealth.
Datahasbecometheengineofeconomicgrowth
formanyeconomiestodayanditisthefuelthat
propelsdigitalisation.Butdespiteitshugepotential,harnessingthegainsofdigitalisationforintra-
regionaltradefacesasignificantchallengedueto
theabsenceofacoordinatedfoundationallayer
fordatainthesecountries.Thishasresultedin
disaggregated,siloedandduplicateddatasystems,operationalinefficienciesanddatapowerimbalanceswhichposeahugebarriertotheinteroperabilityof
digitalservicesandproductsbetweencountriesinsupportofintra-Commonwealthtrade.
Inresponsetotheabovechallenge,the
CommonwealthSecretariat,throughthe
CommonwealthConnectivityAgendaforTrade
andInvestment,andincollaborationwithother
1
Referringtoanydataordifferentpiecesofdata,when
broughttogether,canleadtotheidentificationofaparticularpersonorentity,includingfarmers,traders,enterprises,
consumers,fieldIDsorpolygonsoffarmers’fields.
technicalpartners,beganexploringtheconceptofnationaldatainfrastructureforcountriesin2022.
Thereafter,theConnectivityAgendadevelopedamodelofNationalAgriculturalDataInfrastructure(NAgDI)throughacollaborativeprocesswith
someselectedcountries.Theprocessincludes
diagnosticengagementbycreatingawareness
onthedatacoordinationissue,discussingand
validatingthemodelwithinthenationalcontext,
buildingconsensusonpotentialfollow-upactionsbystakeholders,andadvocatingforthedesignandestablishmentofanationallycoordinatedapproachtoagriculturaldatamanagement.
Threemulti-stakeholdernationaldialogues
wereheldinMalawi(2023),Ghana(2023)and
Bangladesh(2024);onemulti-stakeholderregionaldialoguewasheldintheCaribbean(2024);and
onemulti-stakeholderdialoguewasheldat
COP28inDubai(2024).Asafollow-uptothesedialogues,aWriteshopwasheldinMalawiin
2024todevelopaguideforinvestinginNAgDI,withexpertsrepresentingthemulti-stakeholderdialogues.ThepolicyguideforinvestinginNAgDIpresentedinthisdocumentisagenericguideforallcountries.Theguide,whichwascollaborativelyproducedwiththesupportofmembercountriesandexperts,wasvalidatedin2025throughan
onlineWebinarwithover60expertsglobally.It
providesacomprehensiveoverviewofasectoral
approachtodigitalpublicinfrastructure(DPI)aimedatestablishingacoordinatedandcollaborative
frameworkforagriculturaldatamanagementacrossCommonwealthcountriesandbeyond.
TheNAgDImodeltakesaprocessapproachbyrespondingto‘how’
countriesshoulddesignand
implementsharedinfrastructurefortheiragriculturaldata.
Itisanchoredonaholisticapproachto
infrastructureforagriculturaldataatcountry
level,withinfrastructureframedasasetof
facilitiesandsystemstoincludebothtechnical(hard)andinstitutional(soft)components.TheagricultureinNAgDIalsotakesabroadapproachtoincludefisheries,livestockandforestry,and
dataintheareastoincludeuser
1
dataand
x\NationalAgriculturalDataInfrastructure
content
2
data.Thisuniqueresource–agriculturaldata–requiresnationalinfrastructurethat
encompassespublicandprivatesectorpartnersbeingharnessedbycountries.
Takingthisholisticapproach,theNAgDIinitiativeaimstosupportmembercountriestodesign
andbuildstandardisedandinteroperable
nationalinfrastructurefordataexchangethat
createsasuperhighwayofqualitydatafor
intra-Commonwealthtradeandinvestment
facilitation.Ultimately,itseekstoassistcountriestoharnessthepotentialsofthedataeconomybyfosteringcollaboration,leveragingexisting
digitalpublicgoodsandenhancingtheirdata
managementcapabilitiestosupportinnovationandimprovedecision-makingandsustainableagriculturalpractices.
ThevisionofNAgDIistostrengthen andharmoniseexistingindividualdata systems
3
atcountrylevelthroughaninteroperablenationaldatainfrastructure,enablinginterconnectedinfrastructureat
regionalandgloballevels,therebycreatingasuperhighwayforsecuredataexchangewithinandbetweencountries,andacrossregionsformacro-leveldecision-making.
ThedesignofNAgDItoachieveitsvisionisbuilt
ontwogoals,namely(1)tofosteranenabling
environmentfordataexchangethroughpolicies
andanindependentgovernancemodel,and(2)toestablishasecure,decentralised,interoperableandfinanciallysustainabledataexchangemechanism.TheCommonwealth’smodelofagricultural
datamanagementatcountrylevelconsistsoffourmaincomponentsthatarepresentedasinvestmentareas:
2
Referringtodatathatconveysessence,substance,
information,meaning,purpose,intentorintelligence,
eithersingularlyorwheninacombinedform,ineitherits
unprocessedorprocessedform,includingsoil,agronomic,weather,financial,insuranceandmarketdata.
3
Thedatasystemshererefertotheindividualdatasets(userdataandcontentdata)builtbyseparateorganisationsandcompaniesincountriesforserviceprovision.Examples
includedatasystemsbyAgTechpartnerssuchasHelloTractor,Farmerline,TrotroTractor,Esoko,DigifarmandDigitalGreen,andotherssuchasNationalStatistics
Organisation,theFoodandAgricultureOrganization,
theWorldBank,NationalResearchInstitutes,CGIARandNGOsoperatinginthesamecountry.
•Investmenttodeveloppoliciesand
principlesforNAgDI–thisinvolvesmobilisingresourcestoestablishcomprehensivepoliciesandprinciplestoguidethedesignanduseoftheinfrastructure.
•Investmenttoensureindependent
governanceandadministration–this
involvesconstitutinganindependent
oversightmechanismthatensurestrustandreliabilityoftheinfrastructure.
4
•Investmenttoassembletechnologiesandsystems–thisinvolvesassemblinganddevelopingdecentralised,secure,
standardisedandinteroperabledataexchangemechanisms.
•Investmenttodevelopamarketing
andbusinessstrategyforNAgDI–thisinvolvesmobilisingresourcesfortheinitialestablishmentoftheinfrastructureand
ensuringitsfinancialsustainability.
Basedontheoutcomesofthefournational
dialogues,akeyobservationisthateach
countrymayhavedifferentexistingfoundationalresourcesandbeatdifferentstagesofmaturity.
Somecountrieswithexistingresourcesfordatamanagement,policies,governance,technologiesandbusinessmaybeabletoimplementitfaster.
Asaresult,thispolicyguidetoinvestingdoesnotproposefinancialorbudgetaryconsiderations.
ThegenericguidetoinvestinginNAgDIoutlines
thedetailsofthebroadactivityareasacrossallfourinvestmentareasintermsofafigurativefive-yearprocessofimplementation.
5
Theguideismeanttobeusedbycountriestoplantheirimplementationapproachesanddeveloptheirimplementation
strategiesforNAgDI,adaptedtothecontext
oftheirrespectivecountries.Thedetailedmix
ofbroadactivitieswithineachyearillustrates
theneedtoadoptaholisticapproachtothe
implementationofNAgDI,whichalsodeterminetheinterdependenciesinnationalandlocalcontexts.
4
AsystemorprocesstomaintainawatchfuleyeoverNAgDIthatinvolvestakingresponsibilityforthedesign,operation,implementationandoutcome(qualityandeffectiveness)oftheinfrastructure.
5
Thedurationproposedisintendedtoillustratethat
NAgDIrequiresmedium-tolong-termplanningand
implementation,whiletheactualimplementationphaseofNAgDIcouldbelongerthanfiveyears,andstructuredinphases,dependingonthecurrentconditionsinacountry.
xi
ES1VisualisingtheNAgDImodel
SEED
FUND
FASTFOOFOD
IGM
Thisinfographicusesroadnetworkstraversingboth
DRIVE
THRU
FASTFOOD
sidesofanationalborderasametaphortovisualisethenationalagriculturaldatainfrastructure(NAgDI)model.Itillustratesthefollowingkeyfeatures.
FASTFOOD
Technologies&Systems
Secure,decentralised,standardisedand
interoperabletechnologiesandsystemsthatcreatenationalspacestofacilitateseamlessdataexchange,adheringtodigitalpublic
infrastructureprinciplesandstandards.
Policies&Principles
M彐7JOW彐
Robustandcomprehensivenationalandglobalpoliciesthatbalancetheneedsofindividual
nationswithglobalalignmentandareessentialtocreatesecure,accessibledata.
COUNTRYA
COUNTRYB
ContentData&UserData
M彐7JOW彐
M彐7JOW彐
Datathatconveysessence,substance,
FINANCE
BLENDED
7JOW
M7彐OW彐
NATIONALBORDER
informationorintelligencesuchasagronomicdata,weatherdata,productiondata,andsoon;anddatathatleadstotheidentificationofaparticularpersonorentitysuchasfarmer
profilesandfieldpolygons.
1234
Governance&Administration
Independentandtransparentgovernance
INDEPENDENT
GOVERNANCE
mechanismmandatedbynational
governmentswithoperationalandtechnicalresponsibilitiesonbehalfofdataholdersanddataowners.
Marketing&Business
Innovativefinancingmechanismsand
sustainablebusinessmodelsthatdependonsoundfinancialstrategies,resource
mobilisationandacollaborativeapproachtoinfrastructuredevelopmentratherthan
ExecutiveSummary\
single-entityinitiatives.
xii\NationalAgriculturalDataInfrastructure
Nevertheless,thegeneralareasoffocusineachyearcanbesummarisedasfollows:
•Yearone–advocate,engageandmobilise.Thefocusofthefirstyearshouldbeon
advocacytoidentifyleadinstitutionsand
securinghigh-levelendorsementofNAgDIbynationalgovernmentsformulti-stakeholderengagementandinitialresourcemobilisation.Thefirst-yearactivitiesshouldbeheavily
leanedtowardsinvestmenttodeveloppoliciesandprinciplesintendedtobeappliedtothe
otherinvestmentareas.
•Yeartwo–collaborate,analyseandplan.
Thefocusofthesecondyearshouldbeontheleadinstitutions,ensuringthatstakeholders
understandwhyandhowtocollaborateto
design,developandeventuallyuseshared
infrastructures.Theyear’sactivitiesshouldfocusonanalysiswithevidencetoinform
planning.Thestrategicmessagingshouldbearoundcreatingasharednationalresourcethroughcooperationamongkeypartners.
•Yearthree–design,developandlaunch.
Thefocusofthethirdyearshouldbeon
guidingthecollaborativedevelopmentand
thelaunchofaworkingversionofthenationalinfrastructureinawaythatisadaptedtothe
country,withthepotentialtoconnectwith
othernationalinfrastructures.Forasuccessfuldesigningprocess,anagreementonthe
independentoversightmechanismshouldbereachedbythethirdyear.
•Yearfour–validate,implementand
operate.Thefocusofthefourthyearshouldbeonoperationalisingtheinfrastructure
throughafunctioningNAgDI.Thisshould
bedonebytestproofingthetechnical
andoperationalfunctionalitiesofthe
infrastructureinreadinessformarketinthefinalyear.Activitiesshouldincludevalidatingtheentirepilotprocessandimplementingallpossiblecomponents.
•Yearfive–consolidate,marketandscale.
Thefocusofthefifthandfinalyearshouldbeonstrategicimplementationinordertocreateopportunitiesforbusinessengagementin
readinessoftheinfrastructureforprivatesectorinvestment.Thiswillenablethe
infrastructuretotransitionfromaninitiativetoanationalassetwithasustainable
businessmodel.
Animportantquestionfromnationalgovernmentsandpartnersis:whatarethebenefitsofsuchan
infrastructureformycountry,orwhyshouldIinvest
insuchaninfrastructure?Someoftheanticipated
macro-levelbenefitsofNAgDIforcountriesinclude:
•Independentdataverificationfor
investors.Beforecommittingfunds,investorsscrutinisetheveracityofdatabystartupsandmicro,smallandmediumenterprises.The
independentoversightmechanismofNAgDIwillindependentlyverifyandcertifydata
forinvestors.
•Betterpolicydecisionsonimportandexport.Governmentsimportingproductsbasedoninaccuratedatacouldimpact
businesses.NAgDIwillcoordinatedatasourcesfrommultiplepartnerstoinformbetterpolicydecision-making.
•Unifieddataestimatesforcountries.
Developmentorganisationsoftenreport
independentlyontheperformanceof
countrieswithcontradictingfigures.NAgDI
willensureverificationofsuchexternalreportsthroughharmonisationandcertification.
•Sourceofrevenueforbusinessesandthe
country.Thedataeconomyofacountry
dependsonitsabilitytoharnesstheeconomicvalueofitsdata.NAgDIwillempower
countriestogeneraterevenuefromtheirdatathroughaccesstoreliabledatasets.
•Facingwell-intendedbutdisruptive
externalregulations.Countriesreactto
externalregulationsuchastheEuropeanUnionDeforestationRegulation.NAgDIisaproactiveefforttorespondtosuchfutureregulations
thatdisruptnationalpoliciesandprogrammes.
•Preparingcountriesforartificial
intelligence(AI)andemergingtechnologies.TheeconomicpotentialofAIforcountriesishugeinthenextdecade.AIservicesperformbetteronorganiseddataandNAgDIisaboutbetterdatacoordinationbycountries.
TheoperationofafunctioningNAgDIwillincludesourcingdatasetsfromthemultipleexistingdataholdersbased
ontheagreedbusinessmodel,independentlyverifyingandharmonisingthedatasetsfor
interoperabilityandproducingmacro-leveldecisionproductsforclientsuponrequest.
ExecutiveSummary\xiii
ItshouldbenotedthatthesuccessofNAgDIrestsupondiverseadoptiontoensuresustainability,withthevaluepropositiontoboostexistingservices
throughco-petitionratherthancompetition,
duplicationandinefficientpracticesamong
servicesproviders.Finally,dataingeneralisdomain
agnostic,andNAgDIisjustausecaseofnationaldatainfrastructureforagriculture.FunctionalitiessuchasthoseinNAgDIcanbescaledtoother
domainssuchashealthandeducationandmergedwithfoundationalDPItoeventuallyresultina
comprehensivenationaldatainfrastructure.
1.OpportunitiesandChallengesoftheAgriculturalSectorintheDataEconomy\1
1.Opportunitiesand
ChallengesoftheAgriculturalSectorintheDataEconomy
1.1TheImportanceoftheDataEconomytotheAgriculturalSector
Datahasbecometheengineofgrowthformanyeconomiestoday,andthiswillincreaseinthe
future.Unlikeresourcessuchasgoldandoil,dataisaninfiniteandreusableresource.Themore
dataisusedthemoreusefulitbecomesasits
applicationsarefurtherrevealed.Datacanbe
replicatedindefinitelyandtransportedaroundtheworldatverylowcost.Therefore,hoardingdatainsiloesreducesitsusefulness.Dataisalsoasourceofpower:thosewhohaveitcaninfluencesociety,bothpositivelyandnegatively.Whenunregulated,data-miningcausesissuesaroundprivacyand
powerimbalance.
Theglobaldataeconomycomprisestheoverall
impactsofthedatamarketontheeconomies
ofnations,entitiesandindividuals.Itinvolves
thegeneration,collection,storage,processing,
analysis,distribution,useandreuseofdatabeing
enabledbydigitaltechnologies.Thedataeconomyishelpingnationstodriveinnovationacross
industries.Theincreasedvolumeofdatasetsis
enablinggovernmentsandbusinessestosupporttimelyresearch,identifyemergingtrends,make
criticalpolicydecisions,developnewsolutions,
informinvestmentsanditerateproductsmore
rapidlythaneverbefore.Inturn,theseprocesses
areacceleratingtheinnovationcyclebyfostering
creativity,drivingcompetitiveadvantageand
deliveringnewgoodsandservicesforconsumersinsectorssuchasagriculture,climate,health,finance,educationandmobility.Increasingly,precision
analyticsandcustomisedandtailoredservicesarebeingmadeavailablebyinnovatorsandbusinessesinlinewiththeindividualneeds,preferencesand
behavioursofclientsandcustomers.
Thedataeconomyisproducingdata-driven
insightsbasedonhigh-qualitymarketintelligenceanddataanalyticsacrossvariousindustries.It
isthebedrockforemergingdigitaltechnologies
suchasartificialintelligence(AI),machinelearning,blockchainsandtheinternetofthingsthatare
enablingavailabilityandaccesstoinformation.Bothpublicandprivatesectorentitiesareleveraging
advanceddataanalyticstoidentifyinefficiencies,automateroutinetasksandmakedata-driven
decisionsinreal-timeatafasterrate.Thisallowsstakeholderssuchaspolicy-makers,businessesandotherserviceproviderstomakeinformed
decisions.Theefficiencygainsaretranslatingintocostsavingsduetoenhancedoperationalagility.
Thedataeconomyisalsoaspringboardfornations,entitiesandindividualstohavegreatercontrol
overtheirpersonaldata.Technologicalinnovationsbasedonthesecomprehensivedatasetsare
enablingstakeholderstobettermanagetheir
privatedata,fosteringamoreequitabledata
ecosystem.Thedataeconomyislikelygoingto
determinethenextworldorder,muchliketherolethattheoilindustryhasplayedincreatingeconomicpowerplayersinthepast.Butinmostcountries,itisanuntappedresourcewithenormouspotential
dependingonhowitismined.Asaresult,countriesneedtoconsidertheirdataasanyothernational
resourceandcreatetheenablingenvironment
forittobeharnessed.Collaborativedata-sharing
initiativesbetweenthepublicandprivatesectors
willenablenationstohavesovereigntyovertheir
datawhilealsoallowingbusinessestocompete
andinnovatemoreefficiently.Itwillcreateasolid
foundationforthediscoveryofinnovativ
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