So if a coach comes to officials before the race and asks if he can provide a hat strapped to his athlete's bottles that the athlete will collect within the regulated refreshment zones officials need to draw up an approval and announce it to the field?
Again, Galen wasn't the only athlete to do this. Sounds like others knew it was ok, were told it was ok, and/or were told it was ok and decided not to take advantage. Meb switched hats during the race so he obviously knew it was ok, asked the question himself, or heard Galen was going to do it and thought, "that's a good idea I'll do that." How do you know others did not know they could do that and chose not to? How do you know others heard about it on race morning and thought, "damn I wish I would have thought of that and brought more than one hat."? How do you know an athlete didn't hear about the 'hat option' and think, "I don't like wearing hats so I couldn't care less."?
Because you can't find a link to a formal letter declaring it is ok to switch hats during the race you are suggesting Salazar hid them and secretly passed the hats to Rupp in the exchange zones right in front of officials, thousands of fans along the course, and millions of viewers. That, my friend, makes no sense whatsoever.