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I have always thought of this as penalty yardage until I read an article 3 years ago outlining the situation where the Free Kick wasn't made from the normal 40-yard line and it stated that 1/2 the distance wasn't an option because it wasn't technically a penalty.
But forget that, under the football fundamentals page it (page 71 of 2004 rules book) says "Penalties are either 5, 10 or 15 yards." If this were truly a penalty enforcement they would have added 25 yards to the list.
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