[quicwg/base-drafts] Where can you send CONNECTION_CLOSE (#2151)

[ekr <[e-mail]>]

```If the connection has been successfully established, endpoints MUST send any
CONNECTION_CLOSE frames in a 1-RTT packet.  Prior to connection establishment a
peer might not have 1-RTT keys, so endpoints SHOULD send CONNECTION_CLOSE frames
in a Handshake packet.  If the endpoint does not have Handshake keys, or it is
not certain that the peer has Handshake keys, it MAY send CONNECTION_CLOSE
frames in an Initial packet.  If multiple packets are sent, they can be
coalesced (see {{packet-coalesce}}) to facilitate retransmission.```

Isn't the rule here that you always send it in the highest level?


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