Hi Struggler
From your post, it actually sounds like your friend didn’t get any approval prior to being issued the notice to comply.
While approval can’t be ‘unreasonably witheld’ according to the bylaws, if the OC has not had any opportunity to grant or deny permission, then a notice to comply is probably fair enough as your friend simply turned up with the dogs.
Prior to mediation, I would advise your friend to approach the EC to either get approval, conditions for approval (or their reasons for rejection) and then, if it is warranted, take it to mediation.