Jim,
I agree with BBR. This has been the interpretation of this rule for many years. Your head of officials is correct, the purpose of the rule is to prevent injuries. If the "blockee" can put his hands out and contact the blocker (no matter how low to the ground the hands are) he is able to defend himself and prevent injury.
Where I officiate (Northern Virginia) we don't have this problem. We have impressed upon coaches at rules clinics the rules of BBW, in particular that it can only occur in the FBZ.
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Dave
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