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Date: 2025-05-28 Category: Not Applicable State: Union Government Country: Europe

Commission Decision (EU) 2025/1054 of 19 May 2025 on the consistency of the performance targets included in the draft performance plan submitted by Bulgaria pursuant to Regulation (EC) No 549/2004 of the European Parliament and of the Council with the Union-wide performance targets for the fourth reference period of the Single European Sky performance and charging scheme (notified under document C(2025) 2920)

Issued by European Commission · Directorate-General for Mobility and Transport

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Okay, I'm ready to analyze the policy text and generate the report. **Report on Commission Decision (EU) 2025/1054 Regarding Bulgarian Performance Targets for the Single European Sky** **1. Executive Summary:** This report analyzes Commission Decision (EU) 2025/1054, a decision concerning the consistency of Bulgaria's draft performance plan with Union-wide performance targets for the fourth reference period (RP4, 2025-2029) of the Single European Sky (SES) performance and charging scheme. The decision, based on assessments by the Commission and the Performance Review Body (PRB), concludes that Bulgaria's proposed performance targets in the key performance areas (KPAs) of safety, environment, capacity, and cost-efficiency are consistent with the Union-wide targets. This report provides an overview of the policy, its background, key provisions, and likely impact on the affected industry. **2. Introduction:** The purpose of this report is to provide an informative overview of Commission Decision (EU) 2025/1054, based solely on the provided policy text. The report aims to clarify the decision's content, its rationale, and the implications for stakeholders, particularly those in the air navigation services sector in Bulgaria. **3. Policy Overview:** This is a *New Policy* in the sense that it is a *decision* on a *plan* submitted under existing regulations. It is not amending a previous *decision* on the same plan. * **Core Objective(s):** The core objective of this Commission Decision is to assess and determine the consistency of Bulgaria's draft performance plan for the fourth reference period (2025-2029) with the Union-wide performance targets set for the Single European Sky performance and charging scheme. This ensures alignment of national/local targets with broader EU objectives for air traffic management. **4. Background and Rationale:** * **Problem/Issue Addressed:** The policy addresses the need for coordinated and harmonized air traffic management across the European Union. The Single European Sky initiative aims to improve the efficiency, safety, and environmental performance of air navigation services. To achieve this, Member States are required to develop performance plans with targets that are consistent with Union-wide targets. This decision ensures that Bulgaria's plan contributes effectively to the overall objectives of the SES. The underlying issue is the potential for fragmented or inconsistent national approaches to hinder the benefits of a unified European airspace. **5. Key Provisions / Changes:** * This policy *establishes* a *decision* of the European Commission. It does not create new laws or regulations *per se*. * The decision *formally assesses* Bulgaria's draft performance plan for RP4 (2025-2029). * The *key provision* is the determination that Bulgaria's targets for safety, environment, capacity, and cost-efficiency are *consistent* with Union-wide targets. This approval is conditional on Bulgaria's commitment to implementing operational measures outlined in the European Route Network Improvement Plan (ERNIP) to support its environment performance targets. * The *specific targets* in each of the four Key Performance Areas that were assessed as consistent are detailed in the Annex of the Decision. For example: * **Safety:** Targets on the effectiveness of safety management, expressed as a level of implementation ranging from EASA level A to D for the air navigation service provider BULATSA across various safety management objectives (Safety policy and objectives, Safety risk management, Safety assurance, Safety promotion, Safety culture) over the period 2025-2029. * **Environment:** Average horizontal en route flight efficiency of the actual trajectory, with targets set at 3.33 in 2025, decreasing to 3.25 in 2029. * **Capacity:** En route ATFM delay per flight, with targets set at 0.24 minutes in 2025, decreasing to 0.12 minutes in 2029. * **Cost-Efficiency:** Determined unit cost for en route air navigation services, expressed in BGN and EUR at 2022 prices, with specific target values for each year from 2025-2029. * It *mandates adherence* to these approved targets for Bulgaria's air navigation service provider (BULATSA) during the RP4 period. **6. Target Audience and Stakeholders:** The primary target audience and stakeholders are: * The Republic of Bulgaria, specifically the Ministry of Transport or the equivalent body responsible for air navigation services. * BULATSA (the Bulgarian air navigation service provider). * The European Commission, particularly the directorates responsible for transport and air traffic management. * The Performance Review Body (PRB). * Airlines operating in Bulgarian airspace. * Passengers flying through Bulgarian airspace. * Other Member States and FABs (Functional Airspace Blocks) that interact with Bulgarian airspace. **7. Implementation Aspects (Inferred):** * **Responsible agency/bodies:** BULATSA is responsible for implementing the performance plan and achieving the targets. The Bulgarian government is responsible for oversight and reporting. The European Commission and the PRB will monitor progress. * **Timelines:** The policy applies to the fourth reference period (2025-2029). * **Procedures:** BULATSA needs to implement the measures outlined in its draft performance plan to achieve the targets. This includes measures for safety management, minimizing flight extensions, expanding free route airspace, preventing flight reroutings, increasing digitalization, reorganizing airspace structures, increasing the number of sectors, and increasing the number of air traffic controllers. **8. Expected Outcomes / Impact of Changes:** * The intended outcome is the alignment of Bulgarian air navigation services with the broader European objectives of the Single European Sky. This includes: * Improved safety in Bulgarian airspace. * Enhanced environmental performance through more efficient flight routes. * Increased capacity to handle air traffic, reducing delays. * Cost-efficient air navigation services. * More generally, it supports a harmonized and efficient European airspace. **9. Conclusion:** Commission Decision (EU) 2025/1054 is a significant step in the implementation of the Single European Sky initiative. By confirming the consistency of Bulgaria's performance targets with Union-wide objectives, the decision contributes to a safer, more efficient, and environmentally sustainable air traffic management system in Europe. The success of this policy hinges on the effective implementation of the approved performance plan by BULATSA and the ongoing monitoring and oversight by the European Commission and the PRB. The decision ensures that Bulgaria is contributing to the overall goals of the SES, including increased safety, reduced delays, improved environmental performance, and cost-efficient air navigation services.

Key Entities Referenced

European Union: Political and economic union of European countries. 28.5.2025: Date of the Official Journal EN of the European Union L series 2025/1054 COMMISSION DECISION EU 2025/1054: Commission Decision on the consistency of performance targets included in the draft performance plan submitted by Bulgaria. 19 May 2025: Date of the Commission Decision EU 2025/1054. Bulgaria: Member State that submitted the draft performance plan. Regulation EC No 549/2004: Regulation of the European Parliament and of the Council laying down the framework for the creation of the single European sky. European Parliament: Legislative branch of the European Union. Council: Council of the European Union. Single European Sky: Initiative to reform the architecture of European air traffic management. C(2025) 2920: Document number related to the notification of the Commission Decision. Treaty on the Functioning of the European Union: Treaty outlining the scope of the European Union. Article 11(3) point c: Article and point of Regulation EC No 549/2004 related to the legal basis for the decision. Regulation EU 2024/2803: Regulation of the European Parliament and of the Council on the implementation of the Single European Sky. Article 5(8)3: Article and point of Regulation EU 2024/2803 related to the legal basis for the decision. Commission Implementing Regulation EU 2019/317: Regulation laying down a performance and charging scheme in the single European sky and repealing Implementing Regulations EU No 390/2013 and EU No 391/2013. Article 14(2): Article and point of Commission Implementing Regulation EU 2019/317 related to the legal basis for the decision. Member States: Countries that are part of the European Union. FABs: Functional Airspace Blocks. RP4: Fourth reference period (2025-2029) of the performance and charging scheme. 2025-2029: The fourth reference period (RP4) Commission Implementing Decision EU 2024/1688: Commission Implementing Decision setting Unionwide performance targets for the air traffic management network for the fourth reference period. 1 October 2024: Date by which Member States submitted draft performance plans. 15 November 2024: Date by which Member States submitted updated draft performance plans. Performance Review Body PRB: Body assisting the Commission in the implementation of the performance scheme. Annex IV: Annex IV to Implementing Regulation EU 2019/317 laying down criteria for assessing the consistency of local performance targets Article 14(1): Article 14(1) of Implementing Regulation EU 2019/317 Article 15(2): Article 15(2) of Regulation EC No 550/2004 Article 22(5): Article 22(5) of Implementing Regulation EU 2019/317 Regulation EC No 550/2004: Regulation of the European Parliament and of the Council on the provision of air navigation services in the single European sky. EASA: European Aviation Safety Agency BULATSA: Air navigation service provider of Bulgaria Commission Implementing Regulation EU 2019/123: Commission Implementing Regulation laying down detailed rules for the implementation of air traffic management (ATM) network functions. European Route Network Improvement Plan ERNIP: Plan drawn up in accordance with Annex I to Commission Implementing Regulation EU 2019/1236 and available at the time of adopting the Unionwide performance targets for RP4, that is on 2 July 2024. 2 July 2024: Date of the Network Operations Plan used for comparison Network Operations Plan: Plan drawn up in accordance with Article 9 of Commission Implementing Regulation EU 2019/123 Sofias area control centre: Area control centre in Sofia, Bulgaria. Apostolos TZITZIKOSTAS: Member of the Commission. Republic of Bulgaria: The addressee of this decision Brussels: Location where the decision was made
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Official Journal EN of the European Union L series 2025/1054 28.5.2025 COMMISSION DECISION(EU) 2025/1054 of 19 May 2025 on the consistency of the performance targets included in the draft performance plan submitted by Bulgaria pursuant to Regulation (EC) No 549/2004 of the European Parliament and of the Council with the Union-wide performance targets for the fourth reference period of the Single European Sky performance and charging scheme (notified under document C(2025) 2920) (Only the Bulgarian text is authentic) THE EUROPEAN COMMISSION, Having regard to the Treaty on the Functioning of the European Union, Having regard to Regulation (EC) No 549/2004 of the European Parliament and of the Council of 10 March 2004 laying down the framework for the creation of the single European sky (the framework Regulation)(1), and in particular Article 11(3) point (c), thereof, Having regard to Regulation (EU) 2024/2803 of the European Parliament and of the Council of 23 October 2024 on the implementation of the Single European Sky(2), and in particular Article 58(3) thereof, Having regard to Commission Implementing Regulation (EU) 2019/317 of 11 February 2019 laying down a performance and charging scheme in the single European sky and repealing Implementing Regulations (EU) No 390/2013 and (EU) No 391/2013(3), and in particular Article 14(2) thereof, Whereas: GENERAL CONSIDERATIONS (1) Pursuant to Article 11 of Regulation (EC) No 549/2004, Member States are to draw up plans, either at national level or at the level of functional airspace blocks (‘FABs’), including performance targets, for each reference period of the performance and charging scheme for air navigation services and network functions. Those plans are to include local performance targets which are consistent with the Union-wide performance targets for the reference period concerned. (2) The Union-wide performance targets for the fourth reference period (‘RP4’, 2025-2029) were set out in Commission Implementing Decision (EU) 2024/1688(4). (3) All Member States have drawn up and adopted draft performance plans for RP4, which were submitted to the Commission for assessment by 1 October 2024. Following the verification of completeness of those draft performance plans, the Commission requested Member States to submit updated draft performance plans by 15 November 2024. (4) The Commission’s assessment presented in this Decision is based on the updated draft performance plan for RP4 submitted by Bulgaria (‘the draft performance plan’). (5) The Performance Review Body (‘PRB’), assisting the Commission in the implementation of the performance scheme, has submitted to the Commission a report containing its advice on the assessment of the draft performance plans. (1) OJ L 96, 31.3.2004, p. 1, ELI: http://data.europa.eu/eli/reg/2004/549/oj. (2) OJ L, 2024/2803, 11.11.2024, ELI: http://data.europa.eu/eli/reg/2024/2803/oj. (3) OJ L 56, 25.2.2019, p. 1, ELI: http://data.europa.eu/eli/reg_impl/2019/317/oj. (4) Commission Implementing Decision (EU) 2024/1688 of 12 June 2024 setting Union-wide performance targets for the air traffic management network for the fourth reference period from 1 January 2025 to 31 December 2029 (OJ L, 2024/1688, 17.6.2024, ELI: http://data.europa.eu/eli/dec_impl/2024/1688/oj). ELI: http://data.europa.eu/eli/dec/2025/1054/oj 1/8EN OJ L, 28.5.2025 (6) In accordance with Article 14(1) of Implementing Regulation (EU) 2019/317, the Commission has assessed the consistency of the local performance targets included in the draft performance plan on the basis of the criteria laid down in point 1 of Annex IV to that Implementing Regulation, and taking account of local circumstances where relevant. (7) The Commission has complemented its assessment of the draft performance plan with a review of the elements set out in point 2 of Annex IV to that Implementing Regulation. In respect of point 2.1(d)(vii) of Annex IV to Implementing Regulation (EU) 2019/317, the Commission notes that it has not conducted, as part of that review, a detailed analysis of the methodology used by Bulgaria for the allocation of costs between en route and terminal services in RP4. Therefore, the Commission has not drawn any conclusions, at this stage, in respect of the compliance of that cost allocation methodology with points (e) and (f) of Article 15(2) Regulation (EC) No 550/2004 of the European Parliament and of the Council(5) and Article 22(5) of Implementing Regulation (EU) 2019/317. COMMISSION ASSESSMENT Assessment of the safety targets (8) As regards the key performance area of safety, the consistency of the targets included in the draft performance plan has been assessed in accordance with point 1.1 of Annex IV to Implementing Regulation (EU) 2019/317. (9) The performance targets in the key performance area of safety proposed by Bulgaria in respect of the effectiveness of safety management, broken down per safety management objective and expressed as a level of implementation, are as follows: Targets on the effectiveness of safety management, expressed as a level of implementation, ranging Bulgaria from EASA level A to D Air navigation service Safety management 2025 2026 2027 2028 2029 provider objective Safety policy and B C C C C objectives Safety risk management C C C C D BULATSA Safety assurance B B C C C Safety promotion B C C C C Safety culture B C C C C (10) The Commission has found that the safety performance targets proposed by Bulgaria for the air navigation service provider ‘BULATSA’ are equal to the Union-wide safety targets for each calendar year from 2026 for three of the safety management objectives, whilst the for the ‘safety assurance’ and the ‘safety risk management’ objectives the Union-wide safety targets are met from 2027 and 2029 respectively. (11) The Commission notes that the draft performance plan sets out measures for BULATSA for the achievement of the local safety targets, including the further development of the safety management system in terms of safety culture principles, technological solutions, fatigue and stress management, safety risk management, and safety assurance processes. (5) Regulation (EC) No 550/2004 of the European Parliament and of the Council of 10 March 2004 on the provision of air navigation services in the single European sky (the service provision Regulation) (OJ L 96, 31.3.2004, p. 10, ELI http://data.europa.eu/eli/reg/ 2004/550/oj). 2/8 ELI: http://data.europa.eu/eli/dec/2025/1054/ojEN OJ L, 28.5.2025 (12) On the basis of the findings set out in recitals (9), (10) and (11), and considering that the Union-wide safety performance targets set in Implementing Decision (EU) 2024/1688 are to be achieved by the final year of RP4, that is, 2029, the local safety performance targets included in the draft performance plan should be considered consistent with the Union-wide performance targets. Assessment of the environment targets (13) As regards the key performance area of environment, the consistency of the targets included in the draft performance plan regarding the average horizontal en routeflight efficiency of the actual trajectory has been assessed based on the criterion laid down in point 1.2 of Annex IV to Implementing Regulation (EU) 2019/317. Accordingly, the proposed environment targets of Bulgaria have been compared to the relevant en route horizontal flight efficiency reference values set out in the European Route Network Improvement Plan (‘ERNIP’), drawn up in accordance with Annex I to Commission Implementing Regulation (EU) 2019/123(6) and available at the time of adopting the Union-wide performance targets for RP4, that is on 2 July 2024. (14) The environment performance targets proposed by Bulgaria for RP4 and the corresponding national reference values from the ERNIP, expressed as the average horizontal en routeflight efficiency of the actual trajectory, are as follows: Bulgaria 2025 2026 2027 2028 2029 Targets in the key performance area of environment, expressed as 3,33 % 3,31 % 3,29 % 3,27 % 3,25 % the average horizontal en routeflight efficiency of the actual trajectory Reference values 3,33 % 3,31 % 3,29 % 3,27 % 3,25 % (15) The Commission observes that the environment targets proposed by Bulgaria are equal to the corresponding national reference values for each calendar year of RP4. (16) The Commission notes that Bulgaria has presented in the draft performance plan measures for the achievement of the local environment targets which include initiatives to minimise flight extensions at off-peak periods, the expansion of free route airspace, the prevention of flight re-routings by maintaining adequate airspace capacity, and the increased digitalisation of service provision. Having regard to the findings of the PRB, the Commission considers that Bulgaria should commit to the implementation of all the operational measures set out in the ERNIP, in order to support the achievement of its environment performance targets for RP4. (17) On the basis of the findings set out in recitals (14), (15) and (16), the targets in the key performance area of environment included in the draft performance plan of Bulgaria should be considered consistent with the Union- wide performance targets for RP4. (6) Commission Implementing Regulation (EU) 2019/123 of 24 January 2019 laying down detailed rules for the implementation of air traffic management (ATM) network functions and repealing Commission Regulation (EU) No 677/2011 (OJ L 28, 31.1.2019, p. 1, ELI: http://data.europa.eu/eli/reg_impl/2019/123/oj). ELI: http://data.europa.eu/eli/dec/2025/1054/oj 3/8EN OJ L, 28.5.2025 Assessment of the capacity targets (18) As regards the key performance area of capacity, the consistency of the targets included in the draft performance plan regarding the average en routeair traffic flow management (‘ATFM’) delay per flight has been assessed based on the criterion laid down in point 1.3 of Annex IV to Implementing Regulation (EU) 2019/317. Accordingly, the proposed capacity targets of Bulgaria have been compared to the relevant reference values set out in the Network Operations Plan drawn up in accordance with Article 9 of Commission Implementing Regulation (EU) 2019/123 and available at the time of adopting the Union-wide performance targets for RP4, that is on 2 July 2024. (19) The en routecapacity targets proposed by Bulgaria for RP4, expressed in minutes of ATFM delay per flight, and the corresponding reference values from the Network Operations Plan, are as follows: Bulgaria 2025 2026 2027 2028 2029 Targets in the key performance area of capacity, expressed in minutes 0,24 0,17 0,15 0,12 0,12 of en routeATFM delay per flight Reference values 0,24 0,17 0,15 0,12 0,12 (20) The Commission observes that the capacity targets proposed by Bulgaria are equal to the corresponding national reference values for each calendar year of RP4. (21) The Commission notes that Bulgaria has presented, in the draft performance plan, measures for the achievement of the local en routecapacity targets. Those measures include the reorganisation of airspace structures, the availability of additional sectors, rising from 18 to 24, in the airspace under the responsibility of Sofia’s area control centre, and an increased number of full-time air traffic controllers in operations. (22) On the basis of the findings set out in recitals (19) to (21), the targets in the key performance area of capacity included in the draft performance plan of Bulgaria should be considered consistent with the Union-wide performance targets for RP4. Assessment of the cost-efficiency targets (23) As regards the key performance area of cost-efficiency, the consistency of the targets included in the draft performance plan regarding the determined unit cost (‘DUC’) for en route air navigation services has been assessed based on the criteria laid down in points 1.4(a), (b) and (c) of Annex IV to Implementing Regulation (EU) 2019/317. Those criteria consist of the DUC trend over RP4, the long-term DUC trend over RP3 and RP4 (2020-2029), and the baseline value for the DUC at charging zone level compared with the average value of the charging zones where air navigation service providers have a similar operational and economic environment. 4/8 ELI: http://data.europa.eu/eli/dec/2025/1054/ojEN OJ L, 28.5.2025 (24) The en routecost-efficiency targets proposed by Bulgaria for RP4, and the related baseline values, are as follows: 2019 2024 En routecharging zone of baseline baseline 2025 2026 2027 2028 2029 Bulgaria value value Targets and baseline values BGN BGN BGN BGN BGN BGN 62,95 BGN 50,68 in the key performance area 53,30 54,06 55,67 57,64 57,38 of cost-efficiency,expressed as determined unit cost (in real EUR­ EUR­ EUR­ EUR­ EUR­ terms at 2022 prices) EUR 32,20 EUR 25,92 27,26 27,65 28,47 29,48 29,34 (25) Concerning the assessment criterion set out in point 1.4(a) of Annex IV to Implementing Regulation (EU) 2019/317, the Commission observes that Bulgaria’s DUC trend at charging zone level of +2,5 % over RP4 underperforms the Union-wide trend of -1,2 % over the same period. (26) Concerning the assessment criterion set out in point 1.4(b) of Annex IV to Implementing Regulation (EU) 2019/317, the Commission observes that Bulgaria’s long-term DUC trend at charging zone level over RP3 and RP4 of -1,0 % is in line with the long-term Union-wide trend of -1,0 % over the same period. (27) Concerning the assessment criterion set out in point 1.4(c) of Annex IV to Implementing Regulation (EU) 2019/317, the Commission observes that Bulgaria’s baseline value for the DUC of EUR 25,92 in real terms at 2022 prices (‘EUR2022’) is 36,9 % lower than the average baseline value of EUR 41,05 in EUR2022 of the relevant comparator group set out in Article 7 Implementing Decision (EU) 2024/1688. (28) It is clear that Bulgaria’s long-term DUC trend over RP3 and RP4 is in line with the corresponding Union-wide trend and that Bulgaria’s baseline value for 2024 is significantly below the comparator group average. Therefore, the Commission considers that the deviation from the Union-wide DUC trend for RP4 referred to in recital (25) does not preclude Bulgaria’s cost-efficiency performance targets from being consistent with the Union-wide cost-efficiency performance targets. (29) On the basis of the findings set out in recitals (24) to (28), the targets in the key performance area of cost-efficiency included in the draft performance plan should be considered consistent with the Union-wide performance targets for RP4. CONCLUSIONS (30) In the light of the foregoing, the performance targets included in the draft performance plan of Bulgaria should be considered consistent with the Union-wide performance targets for RP4, HAS ADOPTED THIS DECISION: Article 1 The performance targets included in the draft performance plan submitted by Bulgaria for the fourth reference period (‘RP4’), listed in the Annex to this Decision, are consistent with the Union-wide performance targets for RP4 set out in Implementing Decision (EU) 2024/1688. ELI: http://data.europa.eu/eli/dec/2025/1054/oj 5/8EN OJ L, 28.5.2025 Article 2 This Decision is addressed to the Republic of Bulgaria. Done at Brussels, 19 May 2025. For the Commission Apostolos TZITZIKOSTAS Member of the Commission 6/8 ELI: http://data.europa.eu/eli/dec/2025/1054/ojEN OJ L, 28.5.2025 ANNEX Performance targets included in the draft performance plan of Bulgaria, found to be consistent with the Union-wide performance targets for the fourth reference period KEY PERFORMANCE AREA OF SAFETY Targets on the effectiveness of safety management, expressed as a level of implementation, ranging Bulgaria from European Aviation Safety Agency (‘EASA’) level A to D Air navigation service Safety management objective 2025 2026 2027 2028 2029 provider Safety policy and objectives B C C C C Safety risk management C C C C D BULATSA Safety assurance B B C C C Safety promotion B C C C C Safety culture B C C C C KEY PERFORMANCE AREA OF ENVIRONMENT Bulgaria 2025 2026 2027 2028 2029 Targets in the key performance area of environment,expressed as the 3,33 % 3,31 % 3,29 % 3,27 % 3,25 % average horizontal en routeflight efficiency of the actual trajectory KEY PERFORMANCE AREA OF CAPACITY Bulgaria 2025 2026 2027 2028 2029 Targets in the key performance area of capacity, 0,24 0,17 0,15 0,12 0,12 expressed in minutes of en route ATFM delay per flight ELI: http://data.europa.eu/eli/dec/2025/1054/oj 7/8EN OJ L, 28.5.2025 KEY PERFORMANCE AREA OF COST-EFFICIENCY En routecharging zone of 2019 2024 2025 2026 2027 2028 2029 Bulgaria baseline baseline value value Targets and baseline values BGN BGN BGN BGN BGN BGN BGN in the key performance area 62,95 50,68 53,30 54,06 55,67 57,64 57,38 of cost-efficiency,expressed as determined unit cost (in EUR­ EUR­ EUR­ EUR­ EUR 32,20 EUR 25,92 EUR 29,34 real terms at 2022 prices) 27,26 27,65 28,47 29,48 8/8 ELI: http://data.europa.eu/eli/dec/2025/1054/oj

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