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If your active roster is not full, for some reason, OOTP tends to allocate the same budget that would be used to fill those spaces.
To explain better, I'll use this example.
25-man active roster, however at present you only have 20 players on the roster.
say minimum is $1,000 (for easy math)
the 20 players on your roster have salaries that equal $40,000.
OOTP will say your current payroll is $45,000 to cover those 5 empty roster spots.
I assume it does this to cover if you promote 5 people, rather than sign 5.
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