Currently you need Admin rights to close an empty Change Package. What is the purpose of this restriction? Also Project Managers should be allowed to close empty Change Packages.
In 11.1, there is a new permission added called "ManageEmptyChangePackage". If a user has this permission, they will be able to discard or close empty change packages created by other users. This permission has to be granted at the mks:si level as an empty change package has no project to check for permissions.
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