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In defense of Radagast: elsewhere (can't find it at the moment) Tolkien glosses the White Council as 'the Istari and the chief Eldar,' which presumably would include Radagast, as well as the Ithryn Luin if they were still around. And in The Hobbit Gandalf went to a 'gathering of the White Wizards,' which implies a number larger than two.
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