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This is the answer to the time-wasting/breaking up play of substitutions in the game - allow rolling substitutions in general:
Squad of 16 players. Anyone can sub on or off (and back again) at any point. Play does not need to be stopped. Fourth official on side line ensures no one enters play until a player of that team has left. Entering field of play before 4th official allows it would be a yellow card offence. This is how other sports such as hockey/rugby do it isn't it?
I don't like the idea of rolling subs, but agree there needs to be a 'free' sub which may also need to be temporary for a head injury whilst being assessed by a neutral doctor