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IMO (and this just my conjecture, but it works), it is because the individual techs happen at a specific point in time based on some specific action that is penalized.
But, the administrative techs can be considered to occur together....at time 0, if you will. Otherwise, you could have each team waiting until the last second, trying to out-wait the other before making a change to the book. This way, the just get it done and don't cause a disruption as you're about to take the floor for the toss.
As for the administrative penalty for not providing the book by 10 minutes, you could treat that as just changing the book after the 10 minute mark. If they didn't add those names at some point, they would otherwise be starting the game with no players and forfeiting the game.
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