I wish I better understood the process. The way it was explained to me is that certain higher valued autographs require an LOA, even if the initial evaluation was positive. The others are by choice from the owner. It doesn't make sense to me either that on an item not requiring an LOA and passed the onsite evaluation wouldn't simply be documenting in a letter the initial ruling. It appears JSA is saying, it passed and at your own risk of failure under more scrutiny, we will consider an LOA (provided it passes the more thorough process. And by the way, that risk you are taking will cost a premium price for an item that passed with a sticker had you chosen that path.
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