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1) The 15 degrees is a range of movement which is deemed to encompass all possible bowling styles as 'legal' and has come from rigorous scientific testing to determine a 'legal range'. More than 15 degrees is considered chucking for any bowler but there will be varying degrees of course.Anyway the 15 degrees is ridiculous, ICC do all these highly complex tests with massively different bowling styles and techniques and so what do the ICC do? They create a single angle for EVERYONE to conform to. I can see it happening in the future where someone deliberately bends their arm bowling leg-spin (for example) because they know they've got 15 degrees to work with that they're not 'utilising'.
2) 15 degrees isn't actually that much to play with. If you can find a bowler which can control how much they chuck within 15 degrees (especially taking in account no-one can physically bowl with a perfectly straight arm so there'd already be several degrees of flexion there), well you'd find a rare human being indeed.