This file is indexed.

/usr/share/xemacs-21.4.22/etc/ORDERS.EUROPE is in xemacs21-support 21.4.22-14ubuntu1.

This file is owned by root:root, with mode 0o644.

The actual contents of the file can be viewed below.

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The Free Software Foundation does not currently have a distributor in
Europe.

Please use the file etc/ORDERS in the GNU Emacs distribution or the
ftpable file prep.ai.mit.edu:/pub/gnu/GNUinfo/ORDERS to order from the
FSF in the United States.