We do not require ball holders. When my daughter was in Massachusetts, they required two ball holders even for sub varsity. Can you imagine how hard it would be to get two ball holders for a JV girls game at 3:30 p.m.? And if they didn't have them, no game. One time I was doing a varsity boys' game. The home team had more than two ball holders, who all appeared to be about 9 to 11 years old. In the first half, I sent off a ball holder. He had been standing behind the visiting team's goal line and was verbally harassing the visiting keeper. I'm such a mean guy.