They must act one opposite of the other, so the resultant hits the minimum of 5 N. When they go in the same direction you get the maximum of 15 N.
For the smallest acceleration of the toy, Dog 1 should pull in one direction while Dog 2 pulls directly opposite. This results in the forces opposing each other, minimizing the net force acting on the toy. Opposite directions create a smaller resultant force and lower acceleration accordingly.
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