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-7 UNIT D?STATEST07 ICA NUCLEA,REGUQ N,yC ISSION.
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BEFORE THE ATOMIC A
LICENSING BOARD In the Matter of
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UNION ELECTRIC COMPANY
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Docket No. STN 50-483 OL
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(Callaway Plant Unit 1)
)
APPLICANT'S MOTION FOR
SUMMARY
DISPOSITION OF REED CONTENTION 14 (INCORPORATED-CITIES, TOWNS AND VILLAGES)
Pursuant to 10 C.F.R. 5 2.749, Applicant moves the Atomic Safety and Licensing Board for summary disposition of Reed Contention 14.
As grounds for-its motion, Applicant asserts that there is no genuine issue of material fact to be heard with respect-to Contention 14,. and that Applicant is entitled to a decision-in its favor on that contention as a matter of
-law.
This-motion is supported by Applicant's Statement of Material Facts as-to-Which There:is No Genuine' Issue to be.
Heard.(Contention 14), Applicant's Memorandum.of Law in Support of Motions'for Summary Disposition on Emergency Planning
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Issues, the Callaway County /Fulton Radiological Emergency Response Plan, the Osage County Radiological Emergency Response l
Plan, the Gasconade County Radiological _ Emergency Response Plan, and the Montgomery County Radiological Emergency Response Plan, together with all pleadings and other papers in this proceeding.
I.
Procedural Background Reed Contention 14, entitled " Incorporated Cities, Towns and Villages," states as follows:
Incorporated cities / towns / villages (identified in 13.B, above) are not included in the response effort.
Neither the proposed Offsite plan or the SOPS of the respective counties, impacted by the plant, contains information concerning alerting and notification of said cities /
towns / villages (hereafter called towns),
communications available for town use in a radiological emergency, transportation of residents, to include non-ambulatory individuals, or methods and means for their determination of the need for and/or inplementation of radiological exposure controls as mandated by NUREG 0654, II, A2a nor is the legal basis for their exclusion from said plan and SOPS specified as required by NUREG 0654, II, A2b.
The protection-(to include evacuation) of citizens within the towns is the legal responsibility of the mayors and town councils of said towns.
Assurance of the complete evacuation of the citizens in these towns is most rapidly performed by the mayors cr members of the councils.
If shelter is to be selected in lieu of evacuation, the assurance that proper protective measures have been implemented by all citizens is again best performed by the mayors or members of the councilc.
Since the town-governmentaxare-responsible for the safety of their citizens in the same manner that county courts are l
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responsible for the safety of citizens in l
Lthe unincorporated portions of their-l counties, failure to include emergency plans for the towns can result in delay in protective _ response.
The use of local responses (included manpower) within said towns is essential _if public health and safety is to be assured.
Such resources are under the control of town governments.
. Final Particularization of Reed's Amended. Contentions 1, 2 and 3 (Oct.
1, 1982),'at.35-36.
The referenced incorporated cities, towns and' villages from Contention 13.B are Mokane (in Callaway County), Chamois (in Osage County), Morrison and Gasconade (in Gasconade County), and Rhineland (in Montgomery County).
Id. at 35. -The Board admitted Reed Contention 14 over the Staff's objections.
Memorandum and Order (Specification of Contentiens), at 5 (Dec.
7, 1982).
II.
Governing Legal Standards The Commission's regulations governing the_ content of applications provide that an operating license applicant ".
shall submit. radiological emergency response plans of. State and i
local governmental entities in the United States that are wholly or partially within the plume exposure pathway' Emergency Planning Zone (EPZ),-as well as the plans'of State governments
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wholly or partially within the ingestion pathway-EPZ."
10 C.F.R. 5 50.33(g) (footnotes omitted).
The Commission's regulatory standards for emergency response plans, in 10 C.F.R. 5 50.47(b), address " State and local response organizations" p
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within the.EPZ, " State and local staff," and " principal response organizations."
The planning standards.and evaluation crit'eria provided by NRC and the Federal Emergency Management Age.ncy (" FEMA")l/ on Assignment of Responsibility (Organizational Control (II.A)),
begin as follows:
1.a.
Each plan shall identify the State, local, Federal and private sector organiza-tions (including utilities), that are intended to be part of the overall response organization for Emergency Planning Zones.
(See Appendix 5).
b.
Each organization and suborganization having an operational role shall specify its concept of operations, and its rela-tionship to the total effort.
NUREG-0654 at 31.
The remainder of the II.A criteria, includ-ing those cited in Reed Contention 14, build on and apply to these identified organizations which are intended to have an operational role.
The NRC/ FEMA definitions of " principal organizations" and "suborganizations" address those which have'some role (major, lead or supportive) in emergency planning or preparedness.
i-j If NUREG-0654, FEMA-REP-1, Rev.
1,
" Criteria for Preparation and Evaluation of Radiological Emergency Response Plans and Preparedness in Support of Nuclear Power Plants."
This document presents guidance for emergency plan review and approval.
See Metropolitan Edison Company-(Three Mile Island
- Nuclear Station, Unit No.-1), LBP-81-59, 14 N.R.C.
1211, 1460 (1981), aff'd, ALAB-698, 16 N.R.C.
slip op. at 13-15-(Oct.
22, 1982).
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The guidance observes that the assignment of roles, function and responsibilities ".
is a matter that i
is best defined by the various parties involved in developing plans and preparedness for each nuclear site.
Where the guidance in this document indicates a function that must be performed, emergency planners at all levels, must decide and agree among themselves, which organization is to perform such 4
function."
Id. at 5-2.
III.
Argument Since Reed Contention 14 was admitted, the plume exposuro EPZ boundary has been modified and Gasconade (in Gasconade County) is no longer within the EPZ.
See Attachment 1 hereto.
2 The population of the remaining four incorporated cities /
towns / villages which are the subject of this contention 2/ is as follows:
Mokane 293 Chamois 546 Morrison 169 Rhineland 172 See Attachment 2 hereto (excerpt from 1980 Census).
Applicant admits and agrees with the first sentence of Reed Contention 14 --
i.e.,
that the above listed municipali-ties are not included in the response effort.
This is not-to 2/. The City of Fulton has a joint response plan with Callaway County.
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say that the residents of those municipalities are not provided for in the off-site plans.
In fact, those residents are a part of the plume exposure EPZ for the Callaway Plant, and their health and safety in a radiological emergency are provided for in the off-site plans, without distinction, in the same manner as are all other county residents of the EPZ.
The issue raised by Reed Contention 14 is whether or not the governments of these municipalities must be included in the off-site plans as response organizations.
The Commission's regulations governing emergency plans do not state that all incorporated municipalities within the EPZ must be assigned the role of a response organization in the required off-site emergency plans.
Rather, those regulations address "lecal response organizations" without specifying that they be county, municipal or township governments, or even that they be governments.
See 10 C.F.R. S 50.47(b).
Which local response organization is assigned tasks in the off-site plans is irrelevant to the NRC as long as the local emergency plans are adequate, and there is reasonable assurance that they can be implemented and that adequate protective measures can and will be taken in the event of a radiological emergency.
See 10 C.F.R. 5 50.47(a).
The NRC/ FEMA guidance, quoted above, extends this point by observing that it is up to the involved emergency planners to decide which organization is to perform a necessary function.
See NUREG-0654 at 5-2.
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Whether or not there are' deficiencies in the emergency response plans for Callaway County /Fulton, Osage County, Gasconade County and Montgomery County presumably is a matter addressed by Mr. Reed's other contentions in this proceeding.
Contention 14 does not in itself allege a planning deficiency.
Instead, Mr. Reed has concocted a circular argument which asserts that these municipalities have legal responsibility for their citizens, that they can "best" or "most rapidly" perform certain functions, and that use should be made of local resources under the control of town governments.
Even assuming for the moment that each of the three prongs of Mr. Reed's argument'is valid, the NRC cannot and should not reallocate local respense organization assignments under the local response plans unless it is first determined that some J
substantive deficiency exists under the current allocation of responsibilities.
Absent some deficiency, NRC should defer to the consensus decisions reached by local planners.
An intervenor's view that another allocation might be better is irrelevant.
Mr. Reed does not contend that the local plans will not work unless these municipal governments are included.
During discovery, Applicant posed the following question to Mr.
Reed:
71.
Is Contention 14 based upon your
' view of the legal " chain of command" within
.the subject incorporated cities, towns and villages?
If the. contention is based to any extent on principles of sound emergency planning, specify the function (s) in'the
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i-3 emergency; response' plans for the Callaway Plantiwhich'can'only be performed by the officials of the subject incorporated.
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l cities,' towns,x. 'and, villages, and in each case explain.why the function cannot be fulfilled by others.3/
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Mr. Reed's reply was as follows:
.71.
Sound emergency planning is based upon knowledge of what is to be done, the
.i efficient performance of tasks involved, and an expeditious initiation and com-pletion of protective measures.
This is best accomplished by persons "on the scene" who have intimate knowledge of all of the job to thi done and potential problems which may interfere with!the mission.
The Eederal government und5rstands this concept as'it'is. manifested in'all of its military and cisit cperations:
proficiency at the lowest command echelon, including equipment and persannel.
To place responsibility for a particularl function on a person who is not imme.diately available to do that job presents a delay in the accomplishment of that function.
While said non-resident person;can fulfill the function, it does not mske for an effective or efficient operation.
It is not sound planning to build.in a delay factor in an emergency response effort if,it can be avoided.4/
Mr. Reed here concedes that a "non-resident" of the municipal-i ity can fulfill the emergency response functions in the off-site' plans (even though municipal residents may participate in the response without municipal government involvement), and
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Applicant's Revised" Interrogatories and Requests for 3
Production of Documents of'Intervenor John G.
Reed, October 20, 1982.
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4/c -Reed's Response to Memorandum and. Order Dated 09 December 1982,' December 14, 1982.
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does not identify a single example of a function which must be performed by these municipal governments.5/
In any case, each of the three prongs of Mr. Reed's argument in Contention 14 is faulty.
Mr. Reed advances no authority for the proposition that as a matter of law the four subject municipal governments must be assigned an operational responsibility in the Callaway Plant off-site plans.
He cites NUREG-0654 criterion II.A.2.b as requiring that the legal basis for excluding these municipal governments must be specified.
In contrast, that criterion calls for an identification of the authorities for those response organizations included in the plans.
Applicant need not present authority to exclude any local government; rather, Mr. Reed must present any legal authority which supports his thesis that they must be included.
The guidance in NUREG-0654 is not that authority.s/
- Further, this unsupported legal theory flies in the face of political facts.
While a municipal government undeniably has some legal responsibilities for its electorate, it does not follow, as Mr.
5/
While the matter is not pivotal to this motion, it is not necessary for government officials to be "on the scene" immediately to implement protective actions for the residents of these towns.
The notification and communications actions under the plans are not dependent upon personal. appearances by government officials or emergency workers at the residences of the affected population.
s/_ The other criterion cited in Contention 14 -- II.A.2.a --
merely requires the presentation of certain information for response organizations included in the plans.
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1 Reed apparently reasons, that all responsibility for the health and welfare of those citizens rests with that level of govern-
. ment alone.
The second argument in Reed Contention 14 is that the mayors and town councils of these municipalities can "best" and "most rapidly" assure that protective actions (i.e.,
evacuation or sheltering) have been completed.
There is no need, however, i
for government executives or legislators at any level to perform such verification functions.
Plans for implementing protective actions for the general public are set forth clearly in the State and local plans.
- See, e.g.,
Annex I to local plans.
Those plans call for law enforcement / security personnel assigned to patrol duty to insure that protective actions have been undertaken.
See id. at TAB 3 and Applicant's Motion for Summary Disposition of Reed Contention 1 (on adequacy cf law enforcement personnel resources).
Lastly, Mr. Reed argues that use should be made of local resources under the control of the town governments.
In fact, the only such resources identified by Mr. Reed in either the contention or his responses to discovery requests are the persons of the mayors and town councils, who nevertheless are Javailable in their personal capacities to participate in designated response organizations.
The following exchange during discovery illustrates the point: L
66.
Specify the emergency response efforts of the cities listed in Contention 13.B which you believe should be delineated in SOPS.2/
66.
All emergency response efforts that apply to counties and the City of.
Fulton should apply equally to the other incorporated towns that are wholly or partially.witnin the 10 mile EPZ.
Formal organizations are made up of people, it may be necessary to create.such organizations if an effective emergency response effort is to be established.8/
70.
What resources, either in equipment or personnel, of the governments of the subject incorporated cities, towns and villages, are required to implement the emergency response plans for the Callaway Plant?9/
70.
The use of local personnel is required to effectively evacuate the citizens in and around population centers.
i The fact that such towns do not have the equipment or formal organizations to commit to the response effort is prime-facae evidence that they need to build a capabil-1 ity to protect their citizens in the event of an accident that involves the release of dangerous radio-nuclides. 'As towns or i-villages incorporated under Missouri State statute, they have a right to become involved in the planning effort.10/
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In short, there are no resources of the subject four municipal governments which are necessary.to implement the 4
2/' Applicant's Revised Interrogatories'.
supra n.3.
jb/.' Reed's Response supra n.~4.
l 9 / - Applicant's. Revised Interrogatories -.
supra n.3..
s 10/
John'G'. Reed's Responses to Applicant's! Revised 0
Interrogatories,. November'12, 1982. t 4
off-site emergency response plans.
Rather, Mr. Reed has I
attempted to create an artificial legal requirement for such involvement, which then would lead to the creation and equipping of new municipal government organizations -- all without a demonstrated deficiency in the capability to complete required tasks under existing plans.
In another proceeding, an intervenor claimed, on appeal, that the Licensing Board had erred in not finding that the City of San Juan Capistrano, which includes about one-half of the EPZ population, must be a " principal response organization" that must fulfill detailed emergency planning requirements.
The Atomic Safety and Licensing Appeal Board rejected that argument, noting that "[t]he Commission's guidance recognizes that in any emergency planning zone there will be overlapping layers of government, and that these must be integrated into a cohesive emergency response."
Southern California Edison Company, et al. (San Onofre Nuclear Generating Station, Units 2 and 3), ALAB-717, 17 N.R.C.
slip op. at 60 (March 4, 1983).
Observing that the City of San Juan Capistrano does not itself have extensive resources that would be of use in an emergency, but that it has been integrated in the planning effort, the Appeal Board concluded:
It would be highly unusual for a governmen-tal entity, bereft of extensive resources of its own, to be required to take a lead role in planning the response to a radio-logical emergency...
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Id. at 61.
Here, where the municipalities involved have no identified governmental resources and an insignificant portion of the EPZ population, the intervenor's position has even less merit.
IV.
Conclusion For all of the foregoing reasons, there is no genuine issue of material fact-to be heard with respect to Contention 14, and Applicant is entitled to a decision in its favor on e
that contention as a matter of law.
Respectfully submitted, SHAW, PITTMAN, POTTS & TROWBRIDGE Thomas A.
- Baxter, P.C.
Jeffrey J.A. Gibbs Counsel for Applicant 1800 M Street, N.W.
Washington, D.C.
20036 (202) 822-1000 May 20, 1983
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//,,-/g,Gasconade Countyl Fulton
.,?t[g ATTACHMENT 2
,e PC801. A27 CHARACTERISTICS OF THE POPULATION
'I Number o" Inhabitants
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F33 tot F88 sameer et...
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3 246 2 791 2 362 '
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364 294
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260 I W nuspa is
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2H 220 203 Ostiese ns.a.....
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433 igF ip.
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Owesses pov-
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219 213 t re Osv a. ce,....
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291 294 2FF I
NUM8ER OF INHA81TANTS W S50Wu 27 8
pyz,y. _- g..
^
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s, gy X
t t
T Table 5.
Pepeladen of Maces: 1960 to 1980-con.
r
.es,se a - e, -oosesse sree es 9m es.
..o -
es.e ese ~,
E ceases assipiesed
- caemie, ceases aseiymed canie.
6 1980 1970
'9eo g
19e0 1970 19ee tagss== come.....
.am..
Ils 183 113
'ise 8imore es,........... eimaiemse, 73i 431 ole tamuse9 asuse.
. Duas.
Ido 112 nue feween any....... /.Q ate-se..
I 229 I sit 1 Con j_
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J 248 a $33 a 2se n,e naswam ene..
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...... 9., asa
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350 327 2p Least (e es,...
. in Our.
674 S2O 43F use nossa cay..
... sesean..............
I $41 I aF4 1 223 t sous some...,,...
.ss...
130 12e iSF mee teena eg.
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I son 97 373 u
i ese enum.
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IPs t F%
231 awe anese ent....
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I los 2 f t9 2 968 1
tassa noma....
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30 e4 F1 itse nsas euge......... 9 Cheess...........
a Larov *s==......
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ael 426 618 useasse even...
.... homen...
224 20e IFS Id 854 Impossue se==.
.... 'ese*en....a..
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m 170 211 263 aero s est...
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t 39 203 Joe stealte saw........
... Weseau........
274 3p e
p 297 l.
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2 462 9 434 he amiewavi esen.....
OF 108 97 stess c89.....
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I tes 924 F34
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911 930 96s i
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$ 1 Fa 6 234 4 412 l
l EseWesa c8,..
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anesisus os,..
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eng 3 tt a27 inyin theen enge...
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237 334 301 j
mesma tav..
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60%
$ 37a
$ 007 moraumes es,.....
8issae..........
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i44 117 s
amenesse m.
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a 423 10%
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8'eus...........
133 136 183 ammmenes m,..
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30 40 12 FSS 12 $12 messes ese........
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742 see 431 Osa Cnose.
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232 10I iF1 sensass,
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442 3a4 See Oman seen..
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922 883 800 annen==.....
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II I 924 1 090 Fat asere.enge.
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343 375 aos onw ee use..
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2 F74 3 722 3 132
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4 gio 3 247 2 NS annen osv..
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4 347 4 22$
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6 I44 5 917 1 319
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4 390 3 247 2 793 teneue rp me..
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4 $42
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370 337 231 fee.....
2 557 2 454 2 337 puis cav................. ammeus I $90 I as2 I N3 asteams ee,ne.......... asseensa...
270 834 Its musee ts es..
2 ISF 2 II9 2 102 feeven es ---
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t 997 1 253 1 229 sammeses, Cs, es,.... usassay,.
2 101 2 ISF 1 914 8eeser vampe........... f.eaan Isa 233 222 r
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- 8 53I 524 8esus use.._ _ _
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p me est use amse 1 210 1 332 3 417 inse Isma - -
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ice 234 732 femmas sume samenus til tag 223
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79
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336 gg, gf F-anums lamme egen
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3 esa 1 320 936 PW vide est-
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$ 149 3 teF i-asas muun esse._
sessess _ _
142 tel 221 Puisse es, -
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2 722
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2 35,5 l,245 21 234 mp ausse es,......
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402 See m9 fise Gs, es, tensesus l 39, g opy I 006 ISI 114 110 ftp (seio est -
Cameer Fai 701 400 inspes asy.....
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die 301 383 ftse Emmt est - -
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248 230 241 feie (see est le taas -
e 442 3 745
$ 943 722 582 524 f
ameno cas............. mensen..............
9 Cee 9 F3e 4 414 les eas 454 9 W3 7 Sif F 452 sawsee suun anspeamul -
tumens est - _
....... Esus 105 lie lie finne Gov est - -
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2 022 I IN weaun.
ahmes eems-tum gumsame ese --
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$19 427 359 plane aussa ery -
mene a67 des p3 tamest osv --
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743 804 084 flunimag ese _
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246 240 270 flamme sed spy -
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3 301 3 396 2 ese 2 0*$
I 832 0 463
-a-W32 MIES048R1 g'
NUM8ER OF INHA88TANTS 9.
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Pepsiedes of Meces: 1%0 01900-con.
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220 IF2 2 $,1 9 Oisen..
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2 $20 2 Fel 2 801 Des Ogue Gesesse eese..
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39 4 730 32 272 Sweegs t ose use enssus..
3 er0 3 HP 2 101 Sams Oese 0,
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243 234 20 7 les semes.......
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