A balk cannot be called if no one is on base. The essence of a balk is the pitcher is tiring to achieve an unfair advantage over the base runner. No runner, no advantage. If a pitcher, while no runners are on base, commits an action that would have been recognized as a balk if runners had been on base, the penalty for this is a ball. So yes, in theory, you could "walk someone without every throwing a pitch" --- (i.e), if you were on the mound and dropped the ball, that would be a "balk" and result in a ball.. The thing is, it does count on pitch count
The setter is a specific person chosen by the team who can get to the ball fast and use their hands in a sort of overhand throwing motion without throwing the ball. A set can also be done by using what is called a underhand set, which is where the ball is set by someone using their platform to bump the ball up to a hitter.
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