Hello DSpace Technical Community,

I would like to report an inconsistent behavior regarding Community 
Administrator permissions that I have consistently reproduced across local 
installations of DSpace 9.3, DSpace 10, and the official DSpace Sandbox.

It appears that a Community Administrator cannot create a collection within 
their designated community *if that community contains zero existing 
collections*. However, the moment a Super Admin creates a single "seed" 
collection, the UI immediately unlocks the ability for the Community 
Administrator to create subsequent collections arbitrarily.

*Steps to Reproduce (Verified on DSpace Sandbox & 9.3/10):*

   1. 
   
   Logged in as a Super Admin, created a new EPerson and a new Top-Level 
   Community.
   2. 
   
   Added the EPerson to the COMMUNITY_..._ADMIN group for that community.
   3. 
   
   Impersonated/logged in as the Community Administrator.
   4. 
   
   *Observation A:* The user can create sub-communities and edit community 
   metadata. However, the option/button to "Create Collection" is completely 
   unavailable or restricted.
   5. 
   
   Logged back in as Super Admin and created a single test collection 
   within that community.
   6. 
   
   Impersonated the Community Administrator again.
   7. 
   
   *Observation B:* Lo and behold, the Community Administrator can now 
   successfully click "Create Collection" and independently add further 
   collections.
   8. 
   
   *Observation C:* If the Super Admin deletes that initial test collection 
   (returning the community to an empty collection state), the Community 
   Administrator instantly loses the ability to create collections again.
   9. 
   
   *Observation D:* If this same EPerson is added to a different, 
   pre-existing community that already contains collections, they can 
   immediately add new collections there without issue.
   
This behavior seems highly counterintuitive. If a Community Admin has the 
structural authorization to create collections, their ability to do so 
should not depend on whether the community is empty or already populated. 
Forcing a Super Admin to step in and create the first collection completely 
defeats the purpose of delegating community management to free up 
institutional IT roles.

Is this a known/expected behavioral quirk of the Angular UI's authorization 
evaluation logic, or is this officially recognized as a bug in versions 9.x 
and 10?

Is there a server-side configuration or a specific authorization policy 
override that can bypass this constraint so that empty communities can be 
managed natively by assigned Community Admins from day one?

 Any insights, workarounds, or tracking Jira issues related to this would 
be greatly appreciated. 

Best regards,
euler

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