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that can and does happen in real life, so the occurence is fine.. frequency? that's somethign to ask them to look into if you have a real-world baseline and can show in game that it occurs at a 'bad' rate -- too high/low whatever.
in ootp, i think you can change finances a bit to affect the frequency of this occurence. i would increase revenues -- how depends on context. maybe the poor teams need a bit more or maybe some teams in the middle etc...
increase money available during FA and you will see increased FA contracts relative to extensions.
aslo, make sure you didn't change default value for max cash on hand. 10M is fine.. zero would help this particular concept even more. that retained money only affects extensions and will increase their values the larger the max cash on hand is.
basically, if more teams have money in FA and you reduce money available for extensions (the latter is a small facter relative to default settings), the market forces in game will take care of the perceived problem.
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