Risk Solution Assignment emails not generating for new risk actions? Unlike Control Assignment emails, why?

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This 'Risk Solution Assignment' email does not generate on 'Action creation'. This will only go out if there is an assignment (or reassignment) after initial creation. 

There is a 'Risk Solution creation' email type that you can setup to send these initial creation emails out to the solution owners:

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There is a different rule for Control Assignment emails however - A control assignment email is triggered along with the creation email if a staff member is assigned to the control at the time of its creation. 

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