If the distribution is from the cashing out of an insurance policy, and Box 2a is blank, the entire amount of Box 1 is taxable unless you can calculate the taxable amount and enter it in Box 2a. Don't enter an amount unless you know the taxable portion of your distribution. That would be the total amount of Box 1 less the insurance payments you made over the years.
See instructions for Box 2a in 1099-R Instructions
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