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I had this same issue. I had downloaded the source from the website and unzipped it to C:\dev\ros2_foxy. But I should have started with a clean directory and run the following:

md \dev\ros2_foxy\src
cd \dev\ros2_foxy
curl -sk https://raw.githubusercontent.com/ros2/ros2/foxy/ros2.repos -o ros2.repos
vcs import src < ros2.repos
colcon build --merge-install

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