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I think you still need to be at the national average to release. However a facility could go a ways below based on column Y.
This is correct. Using the data from the PPT posted before the last panel BTR, BUR, BPT, SCK, STT, NEW, ARR, FLL (after their 2nd selection), MDW, GEG (after their 1st selection), IAD, and SUS were all Category 1 or 2 exempt and released bodies. Category 1 exempt received Category 1 release dates and Category 2 exempt received Category 2 release dates.
MDW was Category 2 exempt to begin with and had 3 people get picked up. GEG became Category 2 exempt after their first selection and had 2 additional people get picked up. So it appears as long as you are above the national average you can release as many bodies as your Column Y number allows.