That's exactly how it has worked. Just a bit under 10% of the league was over the 220 cap. All but one of the teams that finished in the top 4 had at least one guy over the cap, some had 2 guys over the cap. The problem is, that obviously none of THOSE teams would want to bump the handicap, and that's 4 or 5 teams out of 16 that would be dead set against it.
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...nothing is more destructive of respect for the government and the law of the land than passing laws which cannot be enforced.--Albert Einstein
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