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the simple answer to why is that it makes things a lot more fair.
The performance lost by not using a spinnaker is different for all boats. A good PHRF committee will try to come up with a fair allowance for non-spin rating (I asume JAM stands for Jib and Main).
It should be noted that as a rule, base PHRF ratings are for spinnakers and 150% genoas, as that is how most boats were designed to be sailed when racing.
Scanning the phrf-nb rating list (over 500 boats) I see credits as high as 23 sec/mile and as low as 8.
In general fractional rigs will get more of a credit because they suffer more without the chute.
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