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Wash clans in several changes of lukewarm water. Drain clams and place in kettle. Add 2 cups cold water and bring slowly to a boil. When clams open, remove from heat. Strain clam broth through a double thickness of cheesecloth; reserve broth. Remove clams from shells. Dip each clam into broth; snip off and discard dark heads. Strain the broth again and chop clams. Preheat oven to 400 degrees. Place potato cubes and onion in a saucepan and add 1 cup salted water. Bring to a boil; cover and simmer until potatoes are tender. Add pepper, sugar, chopped clams and clam broth. Bring to a boil, blend butter and flour with fingers. Stir, bit by bit, into simmering stew. Bring milk to a boil and add to stew. Remove from heat. Butter at 1 1/2 quart pie dish or casserole generously and pour in the clam mixture. Cover with rolled out pie pastry and prick with a fork or make small slashes with knife. Bake for 30 minutes or until pastry is golden. Serve hot.
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