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Can it be played by just two people, or does it need 3+?

It can be played with one GM and one player. it’s rules light and easily adaptable. 

Okay, the last line is, "Encourage the use of safety tools, like X, N, and O cards as well as Lines and Veils. "

I don't see any reference to any of that elsewhere in pamphlet.  Is this supposed to just be a scenario for a separate established game system?  Or are these just common concepts that I've somehow missed?

These are general safety tools you can use. Lots of resources out there for different safety tools if you google!