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The rules allowed the Mercedes 209 to have a larger capacity (209 ci versus 161.7 ci for the overhead cam engines), plus a bigger turbo boost (55 compared to the 45 of the Ford and Honda engines).
Rule 11.07 had existed since 1991, but since it only applied to the Indy 500, it wasn't viable for a team to build a new engine purely for that one race.
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