I suppose it depends on what you count as "action". Baseball might have a similarly paltry number if we only count the time that culminates an at-bat. It may also depend on how much you enjoy the between moments action. For me, I'm much more interested in watching the formations, substitutions, and pre-snap activity of a football game than I am with all the things pitchers, catchers, and hitters do between pitches. (Or even in watching many of the non-eventful pitching, which is why I think the "second screen" remark is apt for many) But I would bet if we took a poll from sports fans about the sports that are the most action packed vs. dull, baseball would overwhelmingly win the "dull" category. Which is a reality I think the league recognizes and actions like this are trying to fix.