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Law 3 - Number of Players

1. Introduction:                                Go to top of this page

Players:

A match is played by two teams, each consisting of not more that eleven players, one of whom is the goalkeeper. A match may not start if either team consists of fewer than seven players. Players arriving late may join the team at any time including extra time. For example, if a team starts with ten men, and their eleventh player arrives ten minutes after the kick-off, the late arrival may join his team-mates on the field of play during an appropriate stoppage in play - and on the Referee's signal.

Note: Some competitions allow teams with fewer that eleven players. In that case, the specific competition rules will dictate the minimum and maximum number of players allowed. (See 'Modifications' below).

Although a team may play with fewer than 11 players if they want to (or if they are forced to through injuries or cautions), teams are not allowed to field more than 11 players, or play with more than one goalkeeper at the same time.

Modifications:

Subject to the agreement of the National Football Associations concerned and provided the principles of these Laws are maintained, the Laws may be modified in their application for matches for players of under 16 years of age, for women footballers, for veteran footballers (over 35 years) and for players with disabilities. This recognises the large number of players with disabilities who play football and permits appropriate modifications to the Laws to enable them to take part in officially organised competitions.

• size of the field of play

• size, weight and material of the ball

• width between the goalposts and height of the crossbar from the ground

• the duration of the periods of play

• substitutions

Before a match begins, the Referee should count all of the players on the field of play, to ensure that the correct numbers are present. This should also be done at the start of each half. Before commencing the second half, the Referee should ask the players whether any substitutions have been made during the half-time interval - players very often forget to mention this to the Referee.

The Referee should also check to see that each goalkeeper is in place, and that their uniforms are correct in accordance with Law 4 (The Players' Equipment). e.g. "Goalkeepers must wear a colour that distinguishes them from the Referee, Assistant referees. & other players."

Official Competitions:

Up to a maximum of three substitutes may be used in any match played in an official competition under the auspices of FIFA, the Confederations or the National Associations.

The rules of the competition must state how many substitutes may be nominated, from three up to a maximum of seven.

In national 'A' team matches, up to a maximum of six substitutes may be used. 

In all other matches, a greater number of substitutes may be used, provided that:

• the teams concerned reach agreement on a maximum number
• the referee is informed before the match.

If the referee is not informed, or if no agreement is reached before the match, no more than six substitutes are allowed.

All matches:

In all matches the names of the substitutes must be given to the Referee prior to the start of the match. Substitutes not so named may not take part in the match.

If a substitution is made during the game, and the Referee notices that the name given to him by the oncoming substitute is not listed in his notebook (or on the official substitute listing), then that player is not allowed to take part in the game. In other words - the names of all of the substitutes must be given to the Referee before the game starts - else they can not take part.   To ascertain the number of substitutes allowed in a game, Referees should check the competition rules before each games.

Bleeding Players

The Referee has a duty to ensure that any player bleeding from a wound leaves the field of play as soon as possible for treatment. Bleeding players must only return after receiving a signal from the Referee - and after the Referee (or Fourth Official if this responsibility has been given to him by the Referee) has checked that the bleeding (or blood soaked uniform) has been dealt with properly. An injured player may only return to the field of play after the match has restarted.

Tip: Should a serious injury occur at the lower levels of football, there will invariably not be a first-aider or medical assistant available. Always carry a pair of disposable throw-away plastic gloves in your pocket during local park level games, just in case you need them to stem any serious blood injuries to players. But be beware - that you (the Referee) are not responsible for treating injured players - and must only do so if the situation calls for it. Remember, this is only a game. Human life is far more important than adhering to correct football Law procedure. If you need to save a life, or prevent serious injury,  then help where you can.

If the Referee is advised by a doctor or other medically qualified person that a player's injury is so bad,  that it would be harmful for that player to continue playing, the Referee should ask the player to leave the field of play. The Referee may also require a player to leave the field to be examined medically.

2. Substitution Procedure:                                  Go to top of this page

To replace a player by a substitute, the following conditions must be observed:

• The Referee must be informed before any proposed substitution is made.
  
• A substitute only enters the field of play after the player being replaced has left and after receiving a signal from the Referee. 
  
• A substitute only enters the field of play during a stoppage in the match at the halfway line and during a stoppage in the match
  
• A substitution is completed when the substitute enters the field play.
  
• From that moment, the substitute becomes a player and the player he has replaced ceases to be a player.
  
• A player who has been replaced takes no further part in the match.
  
• All substitutes are subject to the authority and jurisdiction of the Referee, whether called upon to play or not. 

Referees should try to adhere to the substitution procedures shown above. Referees who who deviate  from these procedures - whether in the interest of saving time or because the procedural steps are thought to be too complex and cumbersome - do so at their own peril. The Laws of the Game specify the procedure for very good reasons. Deviations can lead to ambiguous situations occurring which may be difficult for the Referee to act on within the Law.

If there is a Fourth Official present, he may deal with substitutions on his own (depending on the responsibility given to him by the Referee). If display cards or electronic boards are available, the Fourth Official will display a card (or board) with the number of the player who is leaving the game, followed by a card (or board) with the number of the substitute entering the game. When a substitution takes place, the Senior Assistant Referee should make his way towards the halfway line and assist the Fourth official in the procedure. When the substitution has been fully completed, the Assistant Referee should  take up his position and then give a signal for the restart to the Referee.

If the substitute's equipment does not comply with the Laws of the Game, the Assistant Referee or the Fourth Official can ask the player to adjust his equipment  - or they can inform the Referee, who will take the appropriate action

During situations where more than one substitution is taking place simultaneously, special care should be taken to ensure that each substitution is completed correctly. It is very easy to get muddled-up when players are leaving and entering the field of play at the same time; or when a player has received a red card just prior to a substitution request being made. A player who has been sent-off by the Referee, cannot be replaced by a substitute - that team will have to play with one less player.

Teams have a right to make substitutions in their own time, but must not waste time by bringing a substitute onto the touch line just as play is about to restart. The team officials and the match officials must work together to complete the substitution process as quickly and efficiently as possible..

3. Changing the Goalkeeper:                           Go to top of this page

4. Infringements & Sanctions:                   Go to top of this page       

If a substitute enters the field of play without the Referee being informed:

• play is stopped 

• the substitute is cautioned, shown the yellow card and required to leave the field of play 

• play is restarted with an indirect free kick at the place the ball was located when play was stopped

If a player changes places with the goalkeeper without the Referee being informed before the change is made:

• play continues 

• the players concerned are cautioned and shown the yellow card when the ball is next out of play

For any other infringements of this Law: 

• the players concerned are cautioned and shown the yellow card

Restart of play

If play is stopped by the Referee to administer a caution: 

• the match is restarted by an indirect free kick, to be taken by a player of the opposing team from the place where the ball was when play was stopped

For any other infringements of players coming on the field of play with Referee’s permission BUT wrong in Law. If play is stopped to allow Referee to administer a caution, restart with Indirect Free Kick to opposing side from place where ball was when play was stopped.

Other infringements of Law 3 could be:

Note from webmaster: As mentioned in both Law 3 and 4 - taking the indirect free kick at the place where the ball was when the Referee stopped play is a bit odd – considering that in general, the Laws state indirect free kicks should be taken from the place where the offence occurred (as stipulated in Law 12)
Nevertheless, it’s much the same as the clause in Law 12 that states that an indirect free kick can be awarded for ‘any other offence’ not previously mentioned in Law 12 for which play was stopped to caution or dismiss a player. It is what is known as a ‘catch-all’ clause that allows the Referee to use the indirect free kick for anything that is not a penal offence (direct free kick offence).

Players and Substitutes Sent Off

• A player who has been sent off  before the kick-off may be replaced by one of the named substitutes. 
  A team may therefore commence a match with eleven players even when a player has been ordered off prior to the kick off. A further substitute nomination to make up the substitute numbers cannot be allowed. Play must not be unduly delayed awaiting for the named substitute to enter. If the substitute is not ready to enter immediately, the Referee should start play, and allow the substitute to come on during the next stoppage when the substitute has prepared himself for entry.

• A named substitute who has been sent off, either before the kick off or after play has started, may not be replaced.
  For example, if the competition allows for three named substitutes to be nominated, and one of the substitutes is sent-off before the game has started, the offending  team is only allowed to make a maximum of two substitutions during the remainder of the game. They are not allowed to make their substitute numbers up to the competition allowance of three.

After the game has commenced, a player sent from the field of play (under Law 12) may not be replaced (i.e. that team must continue the remainder of the match with one less player).

5. Decisions of the International FA Board:      Go to top of this page

Decision 1

Subject to the overriding conditions of Law 3, the minimum number of players in a team is left to the discretion of National Associations. The Board is of the opinion however, that a match should not continue if there are fewer than seven players in either team.

Decision 2

A team official may convey tactical instructions to the players during the match and he must return to his position immediately after giving these instructions. All officials must remain within the confines of the technical area, where such an area is provided, and they must behave in a responsible manner.

6. Technical Area:                                                                             Go to top of this page

A team official may convey tactical instructions to the players during the match and must return to his position after doing so. All team officials must remain within the confines of the technical area, where such an area is provided and they must behave in a responsible manner.

Tactical instructions may be given by different team officials during the match provided the person returns to his or her position after giving these instructions and behaves in a responsible manner.

7. Misconduct by Club Officials:                Go to top of this page

8. Questions and Answers:                                  Go to top of this page

Part 1: Substitution type questions and answers:

Additional Questions and Answers provided by FIFA covering all of the Laws of the game, can be found on this web site here. The original FIFA Questions and Answers pdf file can be downloaded from the FIFA web site here.

Substitute Question 1:  A player, who has been substituted, enters the field of play without the permission of the referee. What action will the Referee take?

Note of interest: In a Season 1999/2000 game in the FA Cup 4^th round between Tranmere Rovers and Sunderland in January 2000, an extra player entered the field of play during a mix-up of substitutions 5 minutes from time. This extra player was only on the field of play for about two minutes. It was in the last 5 minutes of an important game. The score did not change - but the extra player headed away a promising free kick delivered into his penalty area. Once the Referee had noticed the extra player, the extra player was asked to leave. The Referee then allowed play to conclude three minutes later. The Referee could have restarted play showing 5 minutes remaining (the time remaining at that point when the substation mix-up occurred), and not 3 (as it would have been in normal play circumstances). And all this happened with some of the most experience Referees in the country officiating. A Fourth Official was also involved. An appeal was launched by one of the teams, on the basis, that if the extra player had not been on the field of play, the outcome of the free kick into the penalty area may well have had a different conclusion. Common sense prevailed, and considering the time remaining in the game, the investigation decided to let the result stand.  This just goes to show how easy it is for any Referee to make a mistake.

Substitute Question 2: A substitute, who is not participating in the match, runs onto the field of play and kicks an opponent. What action does the Referee take?

Substitute Answer No 2: The Referee stops the match, sends off the substitute for violent conduct, shows him the red card and restarts the match with an indirect free kick to the opposing team where the ball was when play was stopped.
(FIFA 2005 Q&A Law 3 Q5)
Note: A substitute who is named on the match report, can be punished with a yellow card and an indirect free kick if he enters the field of play without the referee being informed. For any other individuals who enter the field of play (even if they belong to a team but are not nominated), the play should be restarted with a dropped ball; that person can not get an yellow card, as he his not part of the nominated team.

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Substitution Question 3: Why is it that some players are allowed to receive treatment on the field of play, and are then allowed to remain on the field of play when play restarts, and other injured players are told by the Referee to leave the field of play for treatment. This can be very frustrating for fans, and can appear unfair if your player is told to leave the field of play after treatment, and the opposition player is allowed to stay on.

Substitution Answer 3: (also see my Serious Injury web page). Apart from players having to leave the field of play for bleeding injuries, and stopping play to allow (or insist) that an injured player be removed (see Law 5 "An injured player may only return to the field of play after the match has restarted"), there is no further mention in the Laws of any procedure to be used after players have been treated on the field of play during a stoppage.

A decision taken by the International F.A. Board (FIFA) in 1998/1999 titled:

"Method of injured players leaving the field of play" stipulated that:

... if an injured player was able to walk off the field of play, he should be encouraged to do so, especially if close to the boundary lines (it is therefore unnecessary to carry him off the field of play on a stretcher in these circumstances. When returning to the field of play, an injured player can enter the field from any point on the boundary lines if the ball is out of play. If the ball is in play, the player may only re-enter the field of play from the touch line. In each case, he must await the Referee's signal".

An addition to Law 5 in Season 2002/2003 now stipulates "An injured player may only return to the field of play after the match has restarted."

Players who have been treated on the field of play should be asked to leave the field by the Referee, and are only allowed to re-enter on the Referee's signal. (The Referee can wave players back on, but only after play has been restarted). Injured players who have not received treatment are not asked to leave the field of play. Goalkeepers are always allowed to stay on the field after being treated - this is generally accepted throughout football. Because of the substitution problems created when a goalkeeper is forced to leave the field, Referees usually allow the goalkeeper to be treated on the field of play. With injured or bleeding outfield players, a team can easily adjust for a few minutes or so, whilst the outfield player receives treatment off the field of play - and this does not normally have an effect on the outcome of a game. Teams are not permitted to play without a goalkeeper, so the game cannot commence until the goalkeeper is fit. The goalkeeper is different, because the Law requires a goalkeeper to be present on the field of play for each team, and that is why the goalkeeper is usually treated on the field of play. If the Referee stops play, he can restart it by just dropping the ball to the goalkeeper (a dropped-ball can take place with only one player in situ). But normally, a member of the opposition will offer (in the spirit of the game) to touch the dropped ball back to the goalkeeper. Treating the goalkeeper on the field of play also saves time, because if the goalkeeper had to be treated off the field of play, a colleague would have to take his place in goal. They would then have to swap again when the goalkeeper had received his treatment and was ready to return. It is therefore usually quicker to treat the goalkeeper on the field of play. It is also permissible for any other player, injured at the same time as the goalkeeper, to be treated on the field of play and neither player needs to leave after treatment unless required to do so by the Rules of some Competitions.

To summarise: injured goalkeepers are allowed (by Referees) to be treated on the field of play whilst outfield players are normally treated off the field of play when possible, and can only re-enter once play has restarted, and on receipt of a signal from the Referee. An injured player may only return to the field of play after the match has restarted.

Referees should use their Powers (Law 5) to prevent players and coaches from tactical time wasting by players feigning injury. There may be occasions where a truly injured player may feel disgruntled by being asked to leave the field of play after treatment, but a consistent procedure should be applied by Referees to all cases to ensure fair play.

A FIFA Law 5 amendment in the 1997/1998 season, stipulated that all bleeding players (including goalkeepers) must leave the field of play for treatment and are not allowed to return until the Referee is satisfied that the bleeding is stopped (players can return during play or during a natural stoppage on the Referees signal). The reasoning behind this, is due to the concerns of blood-carried viruses, namely the AIDS virus, it was deemed advisable that the Laws were adjusted to take into account these genuine concerns. Referees are not doctors (but there may be one or two!) and must make judgements to determine whether the player is still bleeding or if the bleeding stopped? Err on the side of caution, and insist on bleeding players leaving the field of play immediately (during play or during a stoppage). If a player is bleeding, he must leave the field immediately to have the bleeding stopped and his skin and uniform cleaned as thoroughly as possible. Referees should keep a close eye on returning players and re-evaluate the injury to ensure that proper treatment or bandaging has been applied to enable that player to continue the game without a reoccurrence of the bleeding. An injured player may only return to the field of play after the match has restarted.

FIFA instruction 549 dated 2nd December 1994 was the initial instruction advising that players must leave the field of play for treatment. An abridged version reads:

"When play is stopped the referee will enquire of a player if he needs treatment.

If the player does require treatment - can he walk to the touch line unaided? If yes, the player leaves the field of play and then play in restarted. If no, the referee signals for physiotherapist, with a one arm wave.

The physiotherapist will be given time for his diagnosis/verification of the injury but must be reminded that no treatment is allowed on the field of play.

After diagnosis/verification, the player and the physiotherapist will walk off the field of play for treatment to be administered. The player will only return after a signal from the referee.

If the physiotherapist considers that the player cannot walk off the pitch, he will advise the referee who will use the two-handed signal for a stretcher.

Players who refuse to leave the field of play must be cautioned for unsporting behaviour.

Two exceptions to the procedure will apply: (a) a head injury sustained by any player and (b) an injury sustained by a goalkeeper.

With the permission of the referee, a physiotherapist is allowed to attend an injured player on the field of play, during the time that the referee is administering disciplinary action against an offending player".

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Substitution Question 4: Whilst the opposition player was taking a corner-kick, the defending team captain asks the Referee for a substitution to be made. The Referee refused (or ignored his request) is he allowed to do this?

Substitution Answer 4: The regulations covering substitution can be found in Law 3. In normal circumstances, the Referee would have allowed the substation to take place during a stoppage such as the taking of the corner kick. BUT the Referee will need to be aware of players asking for a substation to be made with the sole purpose of disrupting the flow of play (this is usually done if the team are winning 1-0 and there are only seconds to go in the game). During the taking of a corner kick, the Referee needs to be very alert during the preparation and taking of the corner kick. In this instance, it can only be assumed that the corner kick taker was in the process of actually taking the kick, and to stop play then would have resulted in all sorts of problems for the Referee. I have had players asking for a substitution to be made, whilst the ball is in flight from a corner kick - and this does effect concentration. On one occasion, a goal was scored, and I was berated by the defending team for not allowing the substitution to take place. Tough! - the Referee is the authority on when a substitution can be made, and it can only be made at the proper time. Conversely, if an attacker is still arranging placement of the ball for a corner kick, then of course, the Referee has plenty of time to blow his whistle to indicate that a substitution is to be made before the corner takes place.

Substitution Question 5: During a game, it was noticed that as a player passed the technical area he switched places with a substitute who was sitting on the bench. The Referee was then seen to have words with the manager before showing a yellow card to both of the players involved. Is the Referee correct in his action. Why should the player coming on receive a yellow card also, when he was enticed to come on by the outgoing player?

Substitute Answer 5: The Referee was totally justified in cautioning both of the players involved. Law 3 states that a substitute is cautioned and shown the yellow card if he enters the field of play without the Referee's permission. Law 12 states that a player is cautioned if he deliberately leaves the field of play without the Referee's permission. In this instance, both Laws 3 and 12 were infringed, and the yellow cards administered to each of the players involved was justified. If the Laws are to be strictly adhered to 'by the book' - then two yellow cards should always be given.

Substitution Question 6: Is a substitution allowed to be made when the other team is taking a goal kick or a corner kick or a throw in?

Substitution Answer 6: (see also my substitution question no. 4 above). Law 3 states that substitutions can be made during any stoppage in the match (including during additional time added on by the Referee at the end of a game). Therefore, substitutes can be made during any dead ball situations such as, when the other team is taking a goal kick or a corner kick or a throw in - so long as the Referee has granted his permission.

Modifications were made in the 1999/2000 Laws covering substitutions in respect of players of under 16 years of age, for women footballers and for veteran footballers (over 35 years) and for players with disabilities - giving the right to allow flying substitutions (but only with the agreement of the national associations. 'Flying substitutions' are when substitutes are allowed to take place whilst play is still in motion - so long as the Referee has signalled, and that the incoming substitute does not enter the field of play until the outgoing substitute has left.

A goalkeeper may change places with an outfield player at anytime during the match - provided it is done during a stoppage in play and the Referee has given his permission.

This is further endorsed by the England FA Basic Syllabus Law 3 Training notes, - which state that "the substitutes MUST be nominated to the Referee before the game, otherwise they may not take part.

The Law is explicit in this case. If a substitute's name is not given to the Referee before the game starts, then he is not allowed to take part in the game. The reason for this, is to prevent teams changing their quota of players as the game is in progress.
In other words - the names of all of the substitutes must be given to the Referee before the game starts - else they can not take part. The Referee in your game was therefore correct in not allowing this player to enter the field of play.

Secondly..........Law 3 clearly states: "A substitution is completed when a substitute enters the field play."

As far as the incident you mention is concerned, because a 'legal' substitute had not entered the field of play, the substitution procedure had not been properly completed according to Law 3. So there is nothing in the Laws to prevent a manager reinstating the original substituted player.

That is the position in Law.

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Substitution Question No. 8: During a substitution authorised by the Referee, the outgoing player walks off the field of play. The oncoming substitute, leaves the technical area, and before entering the field of play, picks the ball up which has gone out near the technical area for a throw-in, and proceeds to throw the ball in correctly to his colleague on the field of play. This colleague, then turns and lobs the ball over the defending goalkeeper and into the net for a goal. Is this a legal goal, and what action should the Referee take to restart play?

Substitution Answer No. 8: Law 3 states that a substitution is completed when a substitute enters the field of play; from that moment, the substitute becomes a legal player and the player he has replaced ceases to be a player. As the oncoming substitute did not actually enter the field of play, the substitution procedure had not been completed, and he is not yet a legal player, and as such is not permitted to take the throw-in.  The goal should not be allowed to count. The substituting procedure should be completed properly and the throw-in retaken.

Substitution Question No. 9: What is the correct procedure for substituting one of my players?:

Substitution Answer 9: The Referee's or Assistant Referees' (or the Fourth Official in matches where there is one) attention must firstly be obtained, and there are several methods of doing this - shouting, waving, talking etc....

Make it clear to the officials that you want to make a substitution. The match official will then attract the Referee’s attention during the next stoppage in play. The Referee will then give his permission for your substitution to be made. Someone (the manager/coach/captain/match official will then identify and notify the player who is to come off. The substitute must not enter the field of play until the outgoing player has left. The oncoming player must enter at the halfway line during a stoppage in play, and on the Referees signal.

Substitution Question No. 10: Can a substitute can be sent off without ever getting onto the field of play?

Substitution Answer No. 10: Yes. Law 3 clearly states that all substitutes are subject to the authority and jurisdiction of the Referee, whether they are called on to play or not. Substitutes AND players must behave themselves in a reasonable manner. They must also refrain from offences such as dissent or offensive language. Substitutes who are warming up near Assistant Referees very often can't resist in throwing a pleasant comment or two, if they happen to disagree with any decisions made by the match officials. If a substitute misbehaves for any reason before becoming a player in the game, and is sent-off by the Referee, then that substitute is not allowed to be replaced on the bench by another person/substitute. Substitutes' names must be given to the Referee at the start of play - teams are not permitted to add another name to the substitute listing, just because one of their substitutes gets sent-off. Nevertheless, teams can still field their normal complement of players (for example, they will not have to play with a player short.)

Substitution Question No. 11: During a match, a substitute who is watching from the touchline ran onto the field of play and spat at an opponent. What action should the Referee take?

Substitution Answer 11: Show  a red card to the substitute, and restart play with an indirect free kick at the place where the ball was when play was stopped.

Substitution Question No.12: If, before the start of a match played under the rules of a competition, a player is replaced by a named substitute without the referee having been notified, may this substitute be permitted to continue to participate in the game?

Substitution Question No. 13: If a player refuses to be substituted, what action can the Referee take?

Substitution Answer No.13: The Referee should allow play to continue. The Referee is not responsible for deciding which players should play and which players should NOT play in a team. The Referee therefore, has no jurisdiction in insisting that the reluctant player MUST leave before allowing play to continue. The Referee should consult the Manager and/or the Captain and seek their assistance to resolve the situation. 

If the player remains adamant that he will not leave, then there are several options:

(a) If at all possible, play should continue. It is the manager’s/captain’s job to sort out the team.

(b) If the manager is adamant that this player must be substituted, but the player still refuses to come off – the Referee should speak to the manager and inform the manager that he (the Referee) has no jurisdiction to force the player off the field of play and play must continue.

(c) If the manager pulls all his other players off the field of play, the game should be abandoned and the facts reported to the appropriate authority.

Substitution Question 14: During a 'friendly game' , the Referee informed the teams that he wished to be notified if a change of goalkeeper is made during half time. It was noticed during the game, that the Referee did not take much notice of oncoming and outgoing outfield player substitutions - so why should the Referee be over particular about any goalkeeper changes at half time?

Substitution Answer 14: Law 3 states that during friendly matches, no more than six substitutions per team shall be permitted in friendly matches. The Referee should be informed of the names before the match commences.

Even though this is a friendly game, the Referee should still adhere to Law 3, and must be informed before ANY substitution is made (including outfield players and goalkeeper changes). The reason why this particular Referee was only interested in the goalkeeper change may be because he did not wish to be seen as overly officious. It is unsporting for teams not to inform the Referee of substitution changes throughout the game - including halftime.

If a player does change places with the goalkeeper - without the Referee being informed - the Referee could caution the two changing players when the ball is next out of play. But I don't suppose the players would have done it on purpose, with the sole aim of cheating the opposition. This is where Law 18 - Common sense comes into play. This is a friendly match, and being over officious could turn it into a 'not quite so friendly' match. The Referee should just have a quiet word with the perpetrators. This is important at the lower (and youth) levels of football, it allows players to learn good habits which will stand them in 'good stead' should they someday play in the higher leagues. I'm a great believer in Referees quietly educating players - after all, have you ever come across a player who actually knows all of the Laws?

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Substitution Question No. 15: Player no. 8 is to be replaced by player no. 12. Player no. 8 leaves the field of play. Before entering the field of play, player no. 12 strikes an opponent who is standing on the touch line. What action does the referee take?

Substitution Answer No. 15: Substitute no. 12 is sent off for violent conduct and shown the red card. Player no. 8 may be replaced by another eligible substitute or may continue as a player since the substitution has not been completed. (FIFA Questions & Answers Law 3 Q9)

Substitution Question 17: As a player is leaving the field of play to be replaced by a substitute - he swears loudly at the Referee before he has left the field of play, and before the replacement substitution has entered the field - what action should the Referee take?

Substitution Answer 17: Send-off the swearing player. The oncoming substitute is not allowed to replace the swearing player who was sent-off. In other words, the team is reduced to 10 players before the substitution has taken place.

Law 3 states that the Referee is to be informed before any proposed substitution is made. Oncoming substitutes should only enter the field of play when the player being substituted has left. And after the oncoming player has received a signal from the Referee to enter the field of play.

The Referee must be very careful to only have 11 players from each side on the field of play at the same time. Having 11 players to contend with is bad enough, but if a situation arose when the Referee allowed the oncoming substitute to enter the field of play before the outgoing substitute had left, then any disciplinary problems become very complicated. For example, if the oncoming substitute in the above example had actually stepped onto the field of play before the outgoing player had left, who would be the bona-fide 11th team player - the player being substituted, or the player coming on? Law 3 does state that a substitute becomes a player as soon as he enters the field of play - BUT - it also states that a team must consist of no more than 11 players! *If both players are on the field of play and both players then swear at the Referee, which one does the Referee send off, and which one should he report - or should he send-off both players? If he has to send off both players: is the team allowed to put on a replacement substitute or not? The possibilities are endless. It can sometimes be very difficult for Referees at local 'Park' level (where there is no defined technical area) to prevent substitutes coming on prematurely from all areas of the touch line. My advice is to, at least try and educate players, and order offending oncoming substitutes to get back off the field of play to await the departure of the outgoing player and your proper signal before they can come onto the field of play.

If the situation *above ever did arise (where both the players above swear at the Referee) then the Referee should send-off the outgoing player, AND send-off the oncoming player (Law 3 - all substitutes are subject to the authority and jurisdiction of the Referee, whether called upon to play or not) - in other words, the Referee can yellow or red card substitutes regardless of whether or not they are on the field of play - both the players and the substitutes can be disciplined by the Referee. Once again, this means that the team is permanently reduced to 10 players (and minus the one substitute).

Substitution Question 18: Can a team consist of 11 outfield players and no goalkeeper?

Answer 18: The answer is NO.
Law 3 (The Number of players) clearly states:

"A match is played by two teams, each consisting of not more that eleven players one of whom is the goalkeeper."

But if you think about it - as soon as a goalkeeper comes out of his penalty area, he becomes another outfield player. It is only when he is inside his penalty area that he has special privileges (e.g. he is allowed to handle the ball). There is nothing to stop a team say, in the last minute of a game, substituting their goalkeeper with one of their top strikers who just happens to be an unused substitute on the bench. The top striker then officially becomes the goalkeeper for his team – who can (if he so wishes) go up for the last corner in the hope of getting a winning goal for his team.

Substitute Question 19: If during play, a goalkeeper changes position with a substitute goalkeeper from the bench, without informing the Referee, what action should the Referee take?.   

Substitute Answer 19: The Referee should caution the two changing players when the ball is next out of play. In theory, the Referee could caution the substitute goalkeeper and the goalkeeper twice – 1^st caution for entering or leaving the field of play respectively, and 2^nd caution (leading to a sending-off) for changing without informing the Referee. But in this case, one caution for should suffice.

Substitution Question No. 20: Can a player who has been substituted be shown a card?

Answer 20: Yes: Law 12 states: -

“Only a player or substitute or substituted player may be shown the red or yellow card”.

Substitute Question 21: It was noticed during a match that two illegal substitutions were made, and the substitutes entered the field of play at different times during the game, without first notifying the Referee or the Assistant Referee. In the first instance, and after the Referee had realised what had happened, the Referee issued a strong warning to the substitute. In the second instance, the Referee decided to issue a caution to the second substitute who had entered the field of play without the Referee's permission. Surely the Referee should have cautioned both the substitutes and not just the second substitute?

Substitute Answer 21: It is not very often that amateur players will purposefully cheat by entering substitutes without informing the Referee. Law 3 (Number of Players) specifically states that a player should be cautioned if he enters the field of play without first obtaining the Referee's permission.

In this first instance, the Referee has used common sense and gave the benefit of doubt to the substitute - who probably did not have a clue about the correct procedure to be used. The Referee should be allowed to use his good judgement by simply warning the player after the first instance. If players continue to cheat after being warned by the Referee (as in the second instance) then the perpetrator should be definitely cautioned. Of course, this only applies to junior (or park) levels of football. Senior players know all about the Law 3 regulations concerning substitutions - so any misdemeanour of Law 3 by them should be punished at the first instance by the obligatory yellow card.

Substitute Question No. 22:  A substitute enters the field of play without having obtained the permission of the Referee, and his team plays with an extra player. While the ball is in play, an opponent punches him. What action should the Referee take?

Substitute Answer No. 22:  The Referee stops play, sends off the player guilty of violent conduct, cautions the substitute for entering the field of play without the permission of the referee and instructs him to leave the field of play. The match is restarted with an indirect free kick at the place where the ball was located when play was stopped.

Substitute Question 23: When does a substitute become a player in case of substitution in the interval at half-time?

Substitute Answer 27: As far as the Laws are concerned, leaving the field of play with out the Referee's permission is a cautionable offence. So it is up to you (the Referee) to decide whether he gets a yellow card or not. There may be circumstances that you are not aware of at the time, which made this player walk off. He may be ill, he may have problems at home, or he may have just had enough - for whatever reason!  You need to use a bit if common sense in these types of scenarios (particularly at the lower levels of football), else we Referees will be looked at as being persecutors, instead of protectors of the game. The word REFEREE has evolved historically, and used to describe a person that stood on the sidelines, who were referred to if a dispute needed resolution. This is no different.

Law 3 general questions and answers:           Go to top of this page

General Question 1a: A game had already started and the Referee decides to double check the number of players during a lull in play - and notices that there are only 10 players in one of the teams. What should the Referee do?

General Answer 1a: Assuming that the Referee had counted the 11 players of both teams at the start of play, then one of the players must have left the field of play without the Referees permission. The Referee should wait until the ball goes out of play, and then summon the captain to try and identify the circumstances of the missing player. When the missing player has been identified, the Referee can caution that player for leaving the field of play without his permission. But of course, use your common sense. It is not normal for players to purposefully leave the field of play without informing the Referee. Whether you caution the player or not, depends very much on the circumstances. For example, you would not caution a player who has quickly left the field of play because he is about to be violently sick - even though you would be in your rights to do so.

General Question 1b: Team 'A' begins the play with only 10 players. The 11th player (let's call him John) remains outside field of play because he is not feeling too good. In the 15th minute of the game, Team 'A' have to take a penalty kick. At that moment John enters field of play unseen by the Referee, and therefore without the Referee's permission and takes the penalty kick. After the penalty kick is taken, the Referee suddenly realises what has happened. How shall the Referee decide if:

a) a goal is scored?

b) the ball rebounds from the goalkeeper onto the field of play?

General Answer 1b: Law 5 states that one of the duties of the Referee is that he "ensures that no unauthorised persons enter the field of play".

Until the Referee has given his permission for John to enter the field of play, John remains an "unauthorised person" as far as the game action is concerned.

Law 12 also states that it is a cautionable offence, for a player to enter the field of play without the Referee's permission.

The Referee should:

(a) Disallow the goal. Or stop play if the ball rebounds from the goalkeeper onto the field of play.

(b) Caution John and ask him to leave the field of play.

(c) If John now wishes to come onto the field of play, he can do so with the Referee's permission

(d) As play has not been restarted, the Referee arranges for the penalty kick to be retaken. As a legal player, John can now also re-take the penalty if he wants to.

(e) The Referee should add onto the end of the half, an appropriate amount of time lost due to this occurrence.

General Question 2: Just before a penalty kick is about to be taken, the defending team decide to change their goalkeeper with one of the outfield players. Once the penalty kick has finished, the defending team then place the original goalkeeper back in goal, and the replacement goalkeeper reverts to his outfield position. Is this allowed?

General Answer 2: As long as the Referee has been informed of both of the changes to the goalkeeper, and the change is made during a stoppage in the game (which it was in this case) - then it is allowed.

The Referee will need to add time on for any minutes lost during the changes to the goalkeeper. The taking of a penalty kick is a normal part of the game, and therefore, the defending team are within their rights to change the goalkeeper with an outfield player before the penalty kick takes place.

Note: It is also permissible (providing that the full quota of substitutes has not been used up) for a team to bring on a substitute goalkeeper from the bench, to replace the existing goalkeeper before the penalty kick is taken. This is technically correct, because substitutions may be completed at any stoppage during the game (including a penalty kick) with the permission of the Referee.

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General Question 3: Does the goalkeeper have to stay in his penalty area during the game, or is he allowed to go where he likes?

General Answer 3: The goalkeeper has to wear a different coloured jersey to that worn by the other players and the Referees He also has special laws (like being allowed to handle the ball in his penalty area) pertaining to himself whilst he is in his penalty area. He is also afforded special protection by most Referees. Apart from this, the goalkeeper is essentially just another player, and can go just where he likes and when he likes. Once the goalkeeper leaves his penalty area, he becomes a normal outfield player, and as such, is subject to the same Laws as every other player. It is permissible for a goalkeeper to take a throw-in, corner-kick, penalty-kick etc. because he is a player of his team. A Peruvian national goalkeeper named Chuillvert, used to take all of his team’s penalty kicks, and was very often seen a long way out of his penalty area with the ball.

General Question 4: At the start of a game, the Red team only had 10 players - the Green team had a full quota of 11 players. In the last ten minutes of the game, the Green team where winning 0-1. The 11th player of the Red team eventually arrives at the ground and is allowed onto the field of play by the Referee. This Red 11th player then proceeds to score 2 quick goals for his side, and the game ends with the Red team winning 2-1. Was the Referee correct in allowing the Red 11th player onto the field of play so late into the game. Should all the eligible players be present before the start of the match?

General Answer 4: The Referee was correct in allowing the Red 11th player to join his team in the last 10 minutes of the game. Although the minimum number of players is left to the discretion of the national associations, a match can proceed (or continue) if there are seven or more players available. Apart from this, there is no mention in the Laws to stipulate that a team must have its full quota of players at the start of the match, or at the start of the second half. Law 3 states that each team may have a maximum of 11 players, one of which must be a goalkeeper. Some competition rules stipulate that team sheets are to be provided to the Referee before the commencement of play. Even in this case, as long as the Red 11th player was named on the team sheet, he can enter play at any time. If only ten players were named on the team sheet at the start of the match, then this player is not allowed into the game (because his name did not appear on the team sheet). As long as the player is an official member of the team, then they can arrive (and enter play) at any time during the game.

Note: A team does not have to play with fewer players just because the other team has fewer players. It might be a sporting thing to do, but teams are under no obligation to do so.
Managers will never reduce the number of players on their team to match the other team.
Although it is not uncommon in friendly matches for one team to consider giving the opposition some of their own players to make up the deficient numbers. No more than six substitutions per team shall be permitted in friendly matches.


Note: If a competition rule states that all players must be named before kick-of, and a team only names 9 players at the start of the game - but later in the game two other players turn up - they cannot enter into the game.

General Question 5: During a match, the goalkeeper is replaced by an outfield player, without the Referee being informed. Immediately after the change, the ball is shot towards goal by the opposition, and the replacement goalkeeper saves the shot with his hands, within his own penalty area. What action should the Referee take. Should he award a penalty for handball. Should he caution the new goalkeeper and the old goalkeeper. Should play be stopped - if so, how should play be restarted?

General Answer 5: Changes to the goalkeeper are not allowed without the permission of the Referee. If the goalkeeper is changed without the Referees acknowledgement, then both the original goalkeeper and the replacement goalkeeper should be cautioned for unsporting behaviour when the ball next goes out of play (this is the only infringement that has actually taken place).
In this instance, the replacement goalkeeper is still deemed under the Laws to be the goalkeeper by the fact that he is wearing a different jersey to the other players. Therefore, the Referee cannot penalise the replacement goalkeeper for handball - because the goalkeeper is allowed to handle the ball in his own penalty area.

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General Question 6: During a game where both teams have used up all of their quota of substitutes, the Red team have two players sent-off for fighting - thus reducing their number to 9 players. Ten minutes later two Red defenders are unable to continue playing due to an unfortunate collision of heads - thus reducing the Red team to 7 players. twenty minutes from the end of the game, the Red goalkeeper purposefully denies an attacker a goal scoring opportunity. What action should the Referee then take?

General Answer 6: The Red team only have 7 players left on the field of play. Although the minimum number of players is left to the discretion of the national associations, a match can only generally continue when there is seven or more players in the team. In this instance, the Referee should send-off the Red team goalkeeper for denying a goal scoring opportunity. This reduces the Red team to 6 players. The Referee should then abandon the match and report the fact to the appropriate league authorities. Competition rules usually stipulate the minimum number of players allowed - and this is usually 7(seven). FIFA specifically recommends that a minimum of 7 players are required to play the game.

Note: If a team with only 7 players remaining is awarded a penalty kick, and before the penalty kick is taken, another of their team players is sent off - the Referee should not allow the penalty to take place. The match should be abandoned.

Note: If a team is reduced to 7 players, and one of their players gets injured and requires treatment off the field of play, the Referee should only abandon the game if that injured player is unable to return into play. The injured player should be allowed time to be treated whilst the game continues.

General Question 7: In some tournaments, teams will purposefully lose a game to guarantee themselves an easier second-round or final-round opponent. Is there anything that the Referee can do about this?

General Answer 7: Not much. Teams may be able to protest to the tournament organisers, but there is not much the Referee can do apart from reporting any unsporting conduct by the coach if he has been openly seen instructing his players to purposefully lose the game, or to score on their own net, or to feign injury so as to lessen the number of players in the team. Most will take a very dim view of this sort of behaviour. The Referee is there to ensure that players adhere to the Laws, there is not much he can do if a team purposefully tries to lose a game. Most teams are also skilful enough to make it look as though they did NOT lose a game on purpose - so it is very difficult for the Referee to decide whether or not 'cheating' tactics have been used. It has been noticed at major tournaments such as the World Cup, or European Championships, that teams who have already qualified for the next round, purposefully put out a reserve team in the last game of their qualifying group. Sometimes this is done to protect their 'star' players, and sometimes to ensure a position in a weaker next round group, by coming second in their qualifying group instead of first. It would be very difficult to prove - and they are not really breaking any competition rules. They are using gamesmanship nonetheless!

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General Question No. 8: If the Referee sends-off player during half-time, for spitting at an opponent in the changing room, is that team then allowed to replace the 'spitting' player, because the offence happened outside of the game itself, and during the half-time interval?

General Answer 8: No. The half-time interval is deemed as part of the game itself. Therefore, disciplinary action is no different to that taken during the course of the game itself. If a player is sent-off during the halftime interval, then that team will not be allowed to replace that offending player - and the team must play the second half with one player short.

General Question No. 9: When a player who has a yellow card to his credit is walking off the field of play at half time (whistle has sounded to end the first half, and the players are headed to the dressing room or standing outside the field of play) turns to the Referee and gives reason for the Referee to show him a 2nd yellow card -  thus a red card and a sending-off; does the team play a man down at the start of the second half?

General Answer 9: Half-time is deemed to be part of the game, so any action that the Referee takes at half-time such as sending off a player, is no different to that player being sent of in the first or second half periods. If a player is sent off in the half time period - that player's team is reduced to 10 players for the second half.

General Question No. 10: Can a goalkeeper take a throw-in, corner, penalty kick or a free kick outside of his penalty area?

General Answer No. 10: Yes, the goalkeeper is a player of his team, and as such can take these actions.

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General Question No. 11: It was noticed in a match, that a player sent-off by the Referee, walked over to the technical area and sat down throughout the match on the bench. Is this correct?

General Answer Number. 11: No. A player sent-off should return to the dressing room. He is not allowed to stay in the technical area, or near the close vicinity of the field of play.

General Question No. 12: Just how many people are allowed to give instructions from the technical area?

General Answer No 12: Only one person at a time from each team (within the technical area) is allowed to convey instructions to players on the field of play. They may move forward to give the instructions, but once these instructions have been completed, they must return to the designated seated area. They may stand beside the seated area - and must behave in a responsible manner. Tactical instructions may be given by different team officials during the match provided the person returns to his or her position after giving these instructions and behaves in a responsible manner.

Only one person at a time should be allowed to convey instructions.

General Question No. 13: Are players who are sent-off allowed to be replaced?

General Answer 13: No.

But there is no specific mention in the modern Laws that says that a player ‘sent off’ during play cannot be replaced.  And it is an important omission in the modern Laws. If a team of Martians got hold of a copy of the Laws and challenged us human’s to a game, who could argue with them when they replace a player sent off, with one of their substitutes! Where does it say that you can’t. It doesn’t anymore!

The Laws were re-written for season 1997/1998. Prior to this, Law 3 International Football Association Board (IFAB) Decision (3), stated: "A player who has been ordered off before play begins may only be replaced by one of the named substitutes. The kick-off must not be delayed to allow the substitute to join his team. A player who has been ordered off after play has started may not be replaced. A named substitute who has been ordered off before or after play has started, may not be replaced. This decision only relates to players who are ordered off under Law 12 (Fouls and Misconduct.) It does not apply to players who have infringed Law 4 (Players' Equipment.)"

Law 3 1996/1997 version "A player who has been ordered off after play has been started may not be replaced".

In fact, this wording (although obvious to most) is an essential missing part of the current Law 3 wording.  The current Laws do not actually state that a player who has been ordered off after play has been started may not be replaced. So, as the Laws stand at the moment, this missing element may confuse those who are new to the game. In other words, there is nothing in the actual Laws, to stop another player replacing a player who has been sent off! But of course, we all know that when a player is sent-off during a game, he is not allowed to be replaced by another player (and this includes half-time periods, or periods between full-time and extra-time etc.)

In order to clarify and simplify the concepts of the Laws, the wording relating to "A player who has been ordered off after play has started..." was removed by the IFAB, and has not reappeared in subsequent revisions of the Laws.  It seemed as though the IFAB believed the basic principle that "a player sent off after the game has started may not be replaced" was a well known fact by the entire football community; and that there was no need to mentioned this principle in the re-write of the Laws for season 1997/1998.

Law 3 paragraph 'Players and Substitutes Sent Off', currently states that "A player who has been sent off before the kick-off may be replaced only by one of the named substitutes. A named substitute who has been sent off, either before the kick-off or after play has started, may not be replaced."

This does not alter the number of players a team may have on the field of play. For example, if there are three substitutes sitting in the technical area, and one of the substitutes is sent-off, the team only has two available substitutions during the remainder of the game.

The modern simplified reiteration of the former IFAB Decision 3 on Law 3 is therefore, no change in the understanding of the Laws. A player who has been ordered off after play has started may not be replaced (i.e. that team must continue the remainder of the match with one less player).

General Question. 14: Can the Referee refuse to allow a player to participate in a game, if an opponent tells the Referee that the player is banned and should not be playing?

Answer 14. The Team who the (supposed illegal) player belongs to is ultimately responsible for only playing legal players. The player himself is also morally responsible for not cheating. If the opposing team think that a player is illegal, then they should report the fact to the appropriate League authority after the game has finished. The Referee is not responsible for checking the legality of the player – nevertheless, if he feels that a player is illegal, he should report this to the League after the game. A quiet word with the team Captain (or the player himself) may clear up any misunderstandings. It is impossible to confirm the legality of a suspicious player before or during a game. The only thing one can do, is to report any concerns after the game has finished. It is then up to the appropriate League to investigate the facts.

General Question No. 15: If a player who is in in possession of the ball, accidentally runs just outside of the touch line (or goal line) in a manoeuvre to pass an opponent, should this player be cautioned for leaving the field of play without the Referee's permission?

General Answer No.15:  No. Play should be allowed to continue. The player is not considered to have left the field of play without the permission of the Referee? Going outside the field of play may be considered as part of a playing movement, but players are expected, as a general rule, to remain within the playing-area.

General Question No. 16: Law 3 states that if the goalkeeper is replaced without the Referee's permission, then both players SHALL be cautioned.  Why is this stipulation in the Laws.  Surely this is not a serious offence, so why should the players always be cautioned?

General Answer No. 16: Law 3 clearly states that the players involved should be cautioned. This is in the Laws to prevent this occurrence happening.

General Question No. 18: If players are very slow in coming out after the half time interval, would it be within the Laws for the Referee to start the second half when both teams have the minimum of seven players on the field of play - and to keep the other players off the field of play until they are signalled on by the Referee at a stoppage in play? What could the Referee do if he wanted to signal the second half kick-off, but the players on the field of play refuse to kick-off until their missing team-mates turn up?

General Question  No. 19:  A team with only seven players is penalised by the award of a penalty-kick and as a consequence one of their player is sent off, leaving only six in the team. Should the Referee allow the penalty-kick to be taken or should he abandon the match before the kick is taken?

General Answer No. 19:The game must be abandoned without allowing the penalty-kick to be taken unless the national association has decided otherwise with regard to the minimum number of players. In the opinion of the International F.A. Board, a match should not be considered valid if there are fewer than seven players in either of the teams.

General Question  No. 20: A player, from a team with only seven players, leaves the field of play to receive medical attention. What action does the Referee take?

Note: The International FA Board is of the opinion that a match cannot be considered as normal if one of the teams is playing with less than 7 players. In a competition where such a limitation applies, a team consisting of 11 players is playing against a team with only 7. When the team consisting of 11 players is about to take a shot at goal one of the players of the team of 7 deliberately leaves the field of play.

Q What further action should the Referee take? If the player who has left the field of play fails to return for the kick-off after the goal is scored, the match is abandoned and a report sent to the appropriate authority.

General Question No. 21: The goalkeeper (No. 1) changes places with player No. 7 without notifying the Referee, just before the end of the match. Both teams have already made their three eligible substitutions and player No. 7 has been cautioned. The ball is in play and the player No. 1 scores a goal for his team just as the normal time runs to an end. Immediately after the goal is scored, the Referee blows the final whistle, without having been able to carry out the kick-off and without having been able to caution the offending players. What action does the referee take?

General Answer 24: Although Law 12 states that a player who deliberately leaves the field of play without the Referee's permission should be cautioned, a Referee is allowed to use a little common sense during such occasions. It maybe that the player was unwell, or maybe he had a sudden urge to rush to the little boys' room! There are a hundred genuine reasons why a player may have done this. The Referee is not meant to be the persecutor of players. His role (on the players' behalf) is to apply the Laws of the game with a spirit of camaraderie, and not as a dictator. It would be easy to advise that all players who leave the field of play must be cautioned, but in real life, a little understanding on the Referee's part is called for. Of course, if a player blatantly does this deliberately, he should be punished, but in most cases it is not done with a premeditated purpose of breaking the Laws.

If the Referee decides not to allow play to continue, but stops the game to caution the guilty player - Law 3 (The Number of Players) states that for any other infringement of this Law:

"If play is stopped by the Referee to administer a caution, the match is restarted by an indirect free kick to be taken by a player of the opposing team from the place where the ball was when play was stopped."

General Answer 25: A recognised "goalkeeper" has been a stipulation in the Laws since the very early days.