Its cumulative points. Drivers could quite easily rack up 11 points in a season through just a few minor things. The blue flags one will be common for the back markers. Pit releases are also common and not the drivers fault.
But then when your riding on 11 points anything that you do gets you a race ban, even such a little thing as being late to a driver briefing. Is that fair?
Probably not, tough really. With all these pay drivers on circuit something needs to be done to ensure driving standards are up to scratch so if following blue flags is really an issue for the teams at the back then they better start learning to pay attention to them.