Coding is time consuming.

[Cappy Z.]

I printed a copy of the DOI and attempted to number the entire document. It appears to have 1322 words.
Interesting that the highest number used in the Beale paper #2(Treasure description) is only 1005. Why number the remain 317?

The page of 'where' aka #1 the highest number used is 2906. And only once. Obviously 'where' is not the DOI. (It only has 1322 words)

And finally the 'name and residences' page #3 the highest number is only 952. Maybe he got tired?

Once you sit down and actually number words..it gets real tiresome and the question arises Why number all they way to 2906 (an actual number used) if the entire alphabet is covered in the first several hundred words? Doesn't make sense UNLESS there is a clue hidden here.
Could it be Beale Code #1 has a maximum of 2906 words? I used the internet and found that some early English law pamphlets keep referring to 2906.

[bigscoop]

The four digit code in C2 can be explained and it always remains the same and represents the same thing. So C1 is the only cipher with different four digit coding, and it has 19 of them, with 1100 being used twice. Odds are, these are not letters, but rather they are entire words or even entire sentence segments. This type of thing was quite common, the coders even using this system to represent ley, ies, th, st, ed, etc. There is no limit to how these 19 four digit codes may have been applied. They could have even been entered with no meaning at all.