OPENDJ-848 added the LDAP Permissive Modify Request Control, 1.2.840.1135126.96.36.1993, to the list of controls that all users can request, by changing a global-aci setting. Thus clients can request the control by default after a fresh installation of OpenDJ.
When upgrading from an earlier version, this global-aci setting is not updated, however. If you want clients to be able to use the control, then update the relevant global-aci setting using the dsconfig command.
This should be mentioned in the release notes.