The goal ought not to be merely following the letter of the regulations but making sure crowds don't accumulate, which is clearly the intention of the rules.
Players typically come from colleges where coaches are tyrants who come down hard on independent thinking, outspokenness, and originality. College coaches see threats everywhere to their empires, as do many pro coaches. But not Coach Carroll.
While you are watching (or trying to ignore) TV commercials at home, everybody in the stadium is spending that time waiting. The players stand around. Some stroll off and back on the field. They have enough time to order a pizza or call their wives. Quarterbacks walk over to the sidelines to confer with coaches.