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open( FILE1, ... );
open( FILE2, ... );
...
      }
   }
}

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OUTPUT file1:new_id, file2:old_id, file3:zip_code3
 IF file1:city_code1 DOES NOT MATCH ANY file3:city_code3
  OR ( file1:city_code1 MATCHES ONE file3:city_code3
      AND THIS file3:state_code3 DOES NOT MATCH ANY file2.state_code2 
+)