I'm guess this will be cleared up straight away in a Q&A/Update.
But doesn't the rule mean that it's possible that the Coopertition Bridge will have 14 balls on it? I feel sorry for the refs

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Also, on the topic of ball setting, is there a rule on what counts as being 'used by the robots' (ie, can it be like last year and have the balls lying next to/touching the bumper so other robots can pick them up?