The current process when reviewing a submittal is to click on the file make edits in the editor then save and a new file is generated under the current steps user/role assigned. Additionally, if the reviewer enters some comments but has not finished the review and saves the document, another document will be generated when going back in to make additional comments.
Intuitively, users seem to want to click the copy to bring the file down to their review step, and I think this makes more sense.
When clicking on the attachment you should be able to open/save your progress on the same file until you are ready to submit. Some submittals have 100s of pages and may take multiple sessions reviewing the submittal before the review can be completed. With multiple files generated there is a much higher risk of an incomplete submittal review being used as the complete review.
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