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You can build page breaks without turning things into Chapters. You can build secondary headings to make entries in the TOC without forcing things into chapters. For appendix items you might want to create an Appendix chapter and then put each item in a secondary heading under the "Appendix Chapter" and they will all end up in the TOC. You can do the same in the front matter. It is up to you how the book is to be organized but don't think your only option to forcing a new page is to force a chapter. The cover page is just a page, not a chapter.
Dale
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