What is the point in putting a clause containing "may" in a compulsory document? As it stands, that document doesn't exclude the seats being in three, four or any number of different locations.
"A minimum of 500 seats under cover must be located in a maximum of two locations" would exclude three locations.
What is the problem with three locations anyway? If the document is interpreted strictly in that way then Old Trafford wouldn't qualify for the Conference.......