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If the Bylaws or CCRs or any existing rules don't specifically allow this, or prohibit owners from bringing guests to functions, then the Board would have to put this to a vote of the membership and see if the required percentage of owners would vote in favor of amending the Bylaws or rules to allow the Board to impose fees for having guests attend.
So yes, they can do so, but not before the membership votes and approves any such new rule.
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