Combine the following in a large soup pan: potatoes, fish, water, onions, salt, and pepper. Bring to a boil, then turn down to simmer and cook covered until the potatoes are tender. Remove the fish, remove the skin/membranes, and flake the fish, then return the fish to the pan. Make a sauce separately by blending the flour with a small amount of the milk to make a smooth thin paste. Add the rest of the milk and pour this sauce over the fish and potato mixture. Cook and stir over a low heat until it just reaches a boiling point. Turn it off and sprinkle the bacon and chives on top. Add the butter and serve.
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