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Though it does not specify, I believe that this rule comment is for the case where R1 is advancing and F1 is throwing ahead on the runner, making a play on him. I would balk F1 in this sitch if R1 was not trying to advance/steal 2B.
This comment is the meely mouth section of OBR that says F1's intent should govern when considering a balk. I think this is the most misunderstood comment in OBR. Because of this comment, some think that you should balk F1 whenever he tries to deceive a runner. I can't remember a time when I considered F1's intent to deceive. If F1 is doing his job, he is trying to deceive EVERY TIME.
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