According to the Jaguars, RB Jordan Todman an exclusive-rights free agent (not a restricted free agent).
Via NFLPA records, Todman’s contract expired after the 2013 season. Via NFL.com’s player page, Todman has only one accrued season, despite being in the league for three total years. All players with fewer than three accrued seasons are exclusive-rights free agents when their contracts expire.
As an exclusive-rights free agent, Todman has two options: Play for the Jaguars or play for no one. While he’s not subject to fines if he doesn’t accept his exclusive-rights tender, Todman can’t join another team. Which means he’s not really a free agent at all.
If the Jaguars let Maurice Jones-Drew walk, they could turn to Todman as their RB1. His YPC (3.4) wasn’t impressive, but it was the same as MJD’s indicating that the offensive line was more of a problem than either of the running backs. As a starter, he did have a nice game against the Bills in Week 15 (29 touches, 153 yards), showing that he can carry the load if necessary.