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The National Football League (NFL)'s history in Canada's most-populous city, Toronto, Ontario, goes back to 1959, when an NFL-CFL interleague game took place at Exhibition Stadium. Excluding NFL-CFL games, Toronto has hosted the third most NFL games among non-U.S. cities after London and Tokyo. It is one of only three cities to have hosted regular season games outside the United States (the others being London and Mexico City).
The NFL has long been rumoured to be considering placing one of its franchises in Toronto, which is the fourth most populous city in North America, and the third-largest market in English-speaking North America. While the CFL has professional Canadian football teams in Toronto (the Argonauts) and nearby Hamilton (the Tiger-Cats), there are no professional American football teams in Canada, NFL or otherwise. Despite being in Canada, Toronto is geographically farther south than existing NFL franchises in Minnesota, Seattle and Green Bay, and has teams in each of the other major professional sports leagues: the Maple Leafs in the National Hockey League, the Blue Jays in Major League Baseball, the Raptors in the National Basketball Association and the Toronto FC in the Major League Soccer. San Diego Chargers executive Dean Spanos was quoted in January 2008 as saying that "the long term goal is globalizing our sport" and that "it is possible that within five or 10 years, the league will have franchises outside the United States."
The first professional U.S. football team to play a home game in Toronto was the Los Angeles Wildcats of the American Football League of 1926, the first major competitor to the National Football League for the dominance of professional football. While the Wildcats nominally represented Los Angeles, California, frequent travel to the west coast still posed a major obstacle so the team was instead a traveling team based in Illinois and played most of its games in the home stadiums of its opponents, with the exception of the Toronto game. The Wildcats lost the regular season game to the New York Yankees (which would join the NFL the following year) 28-0 in front of 10,000 fans at Maple Leaf Stadium on 8 November 1926. The game was relatively popular; at the time, Canadian football still more closely resembled rugby football and had not yet adopted the forward pass. Three years after the game, Canadian football allowed the forward pass.
The NFL has had a presence in Toronto since 1959, when the Toronto Argonauts of the Canadian Football League hosted three NFL teams in a three-season span. The first ever appearance of an NFL team in Toronto was in August of that year during the Chicago Cardinals–Toronto Argonauts exhibition game; it broke the record for exhibition attendance in Canada at 27,770. These interleague exhibition gamess, which had been first tried in Ottawa in 1950 and were later staged in Montreal, were typically played by CFL rules in the first half and NFL rules in the second. The Argos lost all three games. The nearby Hamilton Tiger-Cats also hosted a game against the Bills, then an American Football League team. Buffalo lost the game 38–21, the only time an NFL or AFL team would lose to a CFL team. In 1960 the New York Giants and Chicago Bears played an exhibition game at Varsity Stadium in the first NFL game ever played outside the United States.
During the 1982 NFL season, the NFL players went on strike. In the absence of regular season NFL games, the National Football League Players Association scheduled a series of All-star games across the continent to raise funds. A game between the AFC East and NFC East was scheduled for Toronto's Varsity Stadium for October 24. However, the game was cancelled following a court ruling that permitted players who participated in the games to be sued by their clubs for violating their contracts.
A Toronto group had plans to bring the Buffalo Bills to Toronto to play an exhibition game at Exhibition Stadium in 1988, with hopes that it would become an annual game. However, following objections from CFL Commissioner Douglas Mitchell, the game was vetoed by NFL Commissioner Pete Rozelle. The group would unsuccessfully continue to try to arrange a game for a future season. In 1993 the Cleveland Browns hosted one of their pre-season games in Toronto, which was organized by Molson Brewery, due to a scheduling conflict at Cleveland Stadium with the Cleveland Indians. As early as 1994 the Bills were considered hosting some of their regular season home games in Toronto, with SkyDome officials actively attempting to organize a regular season NFL game at the new stadium. When the NFL reached a five year partnership agreement with the CFL in 1997, which included a $3 million loan to the Canadian league, the NFL received the CFL's blessing to hold an annual preseason or regular season game in either Toronto or Vancouver for the duration of the agreement. The Bills played in two pre-season American Bowls in Toronto in 1995 and 1997, organized by Paul Godfrey, in an attempt to prove the city's worthiness to host a franchise permanently. In 2000 the NFL announced that SkyDome would host American Bowls in 2001 and 2003, but the games ultimately never taking place, with the 2001 game being scrapped due to a lack of high profile teams willing to participate. A planned game featuring the Chicago Bears in the 2002 season was called off in part due to the poor state of the artificial turf.
For decades, the Bills have had a large fan base in southern Ontario. The team averages 15,000 Canadian fans a game at Ralph Wilson Stadium, and has a Canadian sales office and radio affiliate in Toronto: CJCL. The NFL's television rules in Canada have been applied in a similar manner to secondary markets in the U.S., so that nearly all Bills games are televised in Toronto (on CFTO and CITY). Toronto is within a 75-mile (120 km) radius of Ralph Wilson Stadium, and is thus subject to the league's blackout policy for home games that do not sell out.
As far back as the 2005 Super Bowl, NFL Commissioner Paul Tagliabue said the league was considering staging a NFL regular season game in Toronto within a few years, with Paul Godfrey and Rogers Communications bidding to host a game at the Rogers Centre in partnership with Maple Leaf Sports & Entertainment and Larry Tanenbaum, chairman and minority owner of MLSE. Toronto was five cities considered to host a game in 2007, but at the request of the CFL the NFL pushed back their plans for a game in the city by a year so as not to compete with the 95th Grey Cup being hosted in Toronto for the first time since 1992. On October 18, 2007, the Bills announced that they were seeking NFL approval to play a pre-season and at least one regular season home game in Toronto in an attempt to regionalize the franchise and capitalize on the southern Ontario market. Moving games from Ralph Wilson Stadium required the approval of Erie County and the Empire State Development Corporation. On January 30, 2008, it was announced that the Rogers Communications and Tanenbaum, had reached an agreement with the Bills to host five annual regular-season and three exhibition NFL games over five seasons in Toronto's Rogers Centre, beginning in 2008. Rogers Communications, owner of the Rogers Centre, paid C$78 million for the games, and hired a general manager and management staff to handle the games. Unlike the NFL International Series games in London, the Bills Toronto Series games are organized by the Bills and not the NFL. Priority to purchase tickets for Bills in Toronto games was given to season ticket holders of the CFL's Toronto Argonauts and Hamilton Tiger-Cats. On April 3 it was announced that the Bills would play the Pittsburgh Steelers in the pre-season game, and a couple of weeks later it was revealed that they would host their division rivals, the Miami Dolphins, on December 7.
Both games had ticket prices ranging from C$55 to C$295 and VIP tickets from C$325 to C$575. The average ticket price of C$183 was significantly above the highest in the NFL (after converting to U.S. dollars), and nearly four times the Bills' ticket prices, which were the lowest in the league. Tickets were originally sold only as a package for all eight games. The first of these games took place in the 2008 NFL season. The preseason game against the Steelers was scheduled one day before the Toronto Argonauts played in the same stadium. Buffalo won the game, 24–21, but there were reports that organizers had to give away over 10,000 tickets to ensure a sellout crowd, a suggestion denied by Ted Rogers, President and CEO of Rogers Communications. The regular season game against Miami was played after the completion of the 2008 CFL season. The Bills, led by backup quarterback J. P. Losman, lost 16–3, eliminating them from playoff contention for the ninth straight year. Reportedly, about half of the crowd was Dolphins fans.
In March 2009 Rogers announced that it was considering renegotiating the agreement to add a second annual regular-season Bills game beginning in 2010, though this never came to fruition. Ticket prices for the 2009 game were lowered an average of 17%. The game, against the New York Jets, was a featured on the NFL Network's Thursday Night Football package. Again, the Bills lost 19-13. The following year, the Bills lost to the Chicago Bears, 22-19.
NFL officials were considering expanding the season to 18 games in 2011, with the possibility of incorporating additional international play. Rogers again expressed an interest in expanding the series by an additional game per season, especially if the schedule was lengthened. However, the schedule was ultimately not changed in the negotiated collective bargaining agreement. The Bills organization opposed playing more than one regular season game each year in Toronto. In the 2011 Bills "State of the Team" address, team CEO Russ Brandon said that the series had been a major success and had increased the Toronto share of ticket sales by 44% relative to prior to the series. Later that year the Bills won their first game in Toronto, defeating the Washington Redskins, 23-0.
On May 22, 2012, the league gave their approval for a five year extension to the Bills Toronto Series through 2017 should the two sides reach an agreement. The deal, featuring one regular season game each year plus a pre-season game in 2015, was formally announced on January 29, 2013. In the final game of the original deal, the Bills lost to the Seattle Seahawks 50-17.
On March 5, 2014 the Bills and Rogers released a joint statement which announced that they had "postponed for one year the scheduled 2014 regular season game at Rogers Centre" and that they would "use this time to collectively evaluate opportunities and build on the foundation to enhance future games." Keith Pelley, President of Rogers Communication, said that "there’s no hiding the fact the series did not get off to a rosy start" and that "it's tough midway through to change that perception, hence the reason why we thought it would be a best to take a year off then re-launch it once we’ve thought that through." Bills CEO Russ Brandon described Toronto as a "challenged market" for the team and stated that the series "has not translated into enough wins for us there". However, Brandon also emphasized the financial benefits of the series by saying that it has "taken a game out of the [Buffalo] market that has essentially taken 70,000 seats out of our market, and we've truly only sold out two of our home games". He went on to say "we've manufactured sellouts in the other four or five. We're trying to find ways to obviously keep this team viable and we've done a very good job, and this [Toronto] series has obviously contributed to that". Brandon has also said that the additional game would "stress-test the Buffalo market". Brandon revealed that "Southern Ontario and the Toronto market and the GTA (Greater Toronto Area) are now the top secondary market of the Buffalo Bills".
Below is a list of games played in southern Ontario by teams from the NFL, and its predecessor leagues the American Football League of 1926 (AFL 1926) and American Football League (AFL) from which the NFL absorbed teams.
|August 5, 1959||Chicago Cardinals||55–26||Toronto Argonauts||Exhibition Stadium||27,770|
|August 3, 1960||Pittsburgh Steelers||43–16||Toronto Argonauts||Exhibition Stadium||23,570|
|August 2, 1961||St. Louis Cardinals||36–7||Toronto Argonauts||Exhibition Stadium||24,376|
|August 8, 1961||Buffalo Bills (AFL)||21–38||Hamilton Tiger-Cats||Civic Stadium||12,000|
|August 15, 1960||Chicago Bears||16–7||New York Giants||Varsity Stadium||5,401|
|August 27, 1988||Tampa Bay Buccaneers||Cancelled||Buffalo Bills||Exhibition Stadium||—|
|August 14, 1993||New England Patriots||9–12||Cleveland Browns||SkyDome||33,021|
|August 12, 1995||Dallas Cowboys||7–9||Buffalo Bills||SkyDome||55,799|
|August 16, 1997||Green Bay Packers||35–3||Buffalo Bills||SkyDome||53,896|
|August 14, 2008||Pittsburgh Steelers||21–24||Buffalo Bills||Rogers Centre||48,434|
|August 19, 2010||Indianapolis Colts||21–34||Buffalo Bills||Rogers Centre||39,583|
|November 8, 1926||New York Yankees (AFL 1926)||28–0||Los Angeles Wildcats (AFL 1926)||Maple Leaf Stadium||10,000|
|December 7, 2008||Miami Dolphins||16–3||Buffalo Bills||Rogers Centre||52,134|
|December 3, 2009||New York Jets||19–13||Buffalo Bills||Rogers Centre||51,567|
|November 7, 2010||Chicago Bears||22–19||Buffalo Bills||Rogers Centre||50,746|
|October 30, 2011||Washington Redskins||0–23||Buffalo Bills||Rogers Centre||51,579|
|December 16, 2012||Seattle Seahawks||50–17||Buffalo Bills||Rogers Centre||40,770|
|December 1, 2013||Atlanta Falcons||34–31 (OT)||Buffalo Bills||Rogers Centre||38,969|
While Toronto has been home to American football teams over the years, including the Continental Football League's Toronto Rifles from 1965–67, no NFL team has ever been based in the city. However, there have been numerous efforts to bring an NFL club to Toronto over the last than 40 years. In 1952 it was reported that the Dallas Texans of the NFL might be moved to Toronto. In 1955, Eric Cradock, who would later become part owner of the Argos, stated that he had held discussions with the NFL about establishing a Toronto NFL team and that he was considering bringing two teams to the city to play a game to test the market's interest. Later that year it was reported that the Argos would join the NFL by 1957, contingent upon a larger stadium being constructed, over of several other bidders for a Toronto NFL team. A Toronto group announced in 1960 that they were in negotiations with the league for a Toronto franchise to begin play by 1962. The same year, a separate group brought the New York Giants and Chicago Bears to Toronto to play an exhibition game at Varsity Stadium, the first NFL game ever played outside the United States, with the goal of eventually acquiring an expansion franchise for the city. However, prior to the game George Halas, owner of the Bears and chairman of the NFL's expansion committee, said "we should not do anything detrimental to [Canada's] game" on NFL expansion into Canada. In 1964 a Toronto group submitted a bid for an expansion franchise to begin play in 1967, with plans to construct a new stadium. The following year, NFL commissioner Pete Rozelle listed the city as one of 12 potential expansion markets, but stated that "we would not want to do anything detrimental to the CFL." In 1969, a Toronto group approached the NFL about bringing a team to the city. Later that year, Rozelle said that that the league could expand "outside the continental United States", including possibly to Canadian cities.
During John Bassett's ownership of the Argonauts from late-50s to early-70s, he entertained various machinations for bringing American football to Toronto, including moving the Argos to the NFL or bringing an NFL expansion team to the city. At the time, Montreal was pursuing an NFL team and Bassett was concerned that if they were successful it could lead to the demise of the Montreal Alouettes and ultimately the CFL. He viewed his plans to have Toronto join the NFL as a precaution against such a scenario. His son John F. Bassett's attempt to launch the Toronto Northmen in the World Football League in 1974 led to the Canadian government proposing the Canadian Football Act, a bill that was never approved but would have banned US football leagues from playing in Canada to protect the CFL from competition. The bill forced Bassett to move the club to Memphis were they became the Memphis Southmen.
In 1980, an NFL spokesperson said that "we would not consider expanding into Canada unless the federal government extends an invitation". Rozelle said in 1987 that "Toronto and Montreal are both great cities, capable of supporting NFL franchises, but ... we have an obligation to those cities in the United States". After several US lawmakers suggested that they would pressure the NFL to expand within the United States rather than to Canada, Don Weiss, executive director of the NFL, said in 1987 that "Congressional pressure will obviously be brought to bear on us" and that "their reaction will affect our decision." In 1990, new commissioner Paul Tagliabue said that "it is obviously realistic in this decade" for an NFL team to be based in Canada. However, the following year he said he would continue Rozelle's policy of not expanding into Canada. In 1992, with the NFL considering expansion, Tagliabue said "it's a decision we made to limit expansion applications to U.S. cities, because it's our belief that a number of U.S. cities are qualified, and they should be serviced first". He went on to say "we're simply making a business judgment" and it "has nothing to do with any understanding with the Canadian Football League." However, by 1995, Tagliabue said of Toronto "we're very interested in this market". The same year, Roger Goodell, the NFL's vice-president and future commissioner, said Toronto was "unquestionably one of the cities under consideration for future expansion."
When the plans were being developed for the construction of SkyDome, an NFL team was considered as a possible tenant for the new stadium. To leave open this possibility, the stadium operators resisted granting the Argos football exclusivity in their lease at the SkyDome. In 1989, shortly after an announcement that a Montreal based group was seeking an NFL team for their city, a group led by former Chairman of the Municipality of Metropolitan Toronto Paul Godfrey and Carling O'Keefe Breweries announced that they had been pursuing an NFL team to play at the soon to be opened SkyDome for two years, as a contingency in case the CFL or the Argos folded. O'Keefe had previously owned the Argos and retained the right to put an NFL team in the SkyDome if the Argos ceased to exist. When the American Bowl was played at the SkyDome in 1995, the Argos received $300,000 from the organizers to waive their exclusivity on football at the stadium. In 1994, Labatt Brewing Company, then owner of the Blue Jays and Argonauts, considered purchasing the Tampa Bay Buccaneers and relocating them to Toronto's SkyDome following the death of club owner Hugh Culverhouse, with Richard Peddie, who was President of Labatt's sports division, saying that he hoped to acquire a team for the city. Toronto was one of five finalist cities who had groups bidding to purchase the franchise. Toronto interests also pursued the LA Rams before they relocated to St. Louis in 1995. Toronto was one of several cities that Art Modell considered relocating the Cleveland Browns to in 1995 prior to choosing Baltimore. By this time, the Godfrey led group was hoping for a team by the 1998 season, with Tagliabue saying the city was on the short list for expansion candidates. In 1997, the Minnesota Vikings went up for sale and a Toronto group inquired about purchasing the team.
When the NFL decided to expand to 32 teams in 1998, Toronto was one of three finalists (along with Houston and Los Angeles) considered. At the time, Tagliabue said that "the CFL and NFL could fit together in Canada." By this time there were questions whether SkyDome was a suitable long-term NFL venue, with Godfrey developing plans for a new stadium near Downsview Park. Then Toronto mayor Mel Lastman ruled out funding from the city, saying "no money for professional sports". It was speculated that if Toronto's bid to host the 2008 Summer Olympics were successful, the stadium constructed for the games could be repurposed for a NFL club. When it became clear that Toronto was not likely to be the successful bidder, Godfrey suggested that "I don't think they'll leave L.A. or Houston out for, say, 10 years. I will, though, grab hold of the coattails of whoever is left out this time around and hopefully go in with them."
Godfrey was named President and CEO when Rogers Communications purchased the Toronto Blue Jays in 2000. At the time, Godfrey's stated that "part of my responsibilities are to chase an NFL team and other sports options". Ted Rogers, had held discussion with Godfrey's with regards to owning an NFL team as far back as 1994, said that "We think the city deserves an NFL team. We want to be part of that." Corporate ownership is forbidden under the NFL's ownership policy, so his company would not be able to buy the team like with the Blue Jays. Rather he would have had to have purchased it as an individual. By this time Godfrey had switched his focus from an expansion team to the relocation of an existing team, saying "I used to think an expansion franchise was the way to go but I'm quite certain now that our best chance would be to acquire an existing franchise. There are four or five franchises in the NFL that could move, and I see no reason why Toronto can't get one of them in the not-too-distant future." Late that year it was reported that Rogers had targeted the Arizona Cardinals to relocate to Toronto, with plans for the SkyDome to undergo a significant renovation to make it acceptable for the NFL, including removing the SkyDome hotel so it could be replaced with extra seats.
When Rogers acquired the New England Sea Wolves of the Arena Football League in 2000 and relocated them to Toronto, it was suggested that the move would help the drive for an NFL team as the NFL had a close relationship with the AFL. Numerous AFL clubs owned by NFL teams, and the NFL held an option to purchase 49.9% of the AFL (though it never executed it.)
In 2001, Godfrey said that "the NFL requires that the team control the luxury box revenues." As the Dome was owned by Sportsco at the time, this was an impediment to Rogers securing a team. However, following the purchase of the stadium by Rogers in 2004, this issue was resolved.
It was reported in 2001 that the New Orleans Saints were considering Toronto as a potential city to relocate to. Godfrey has stated that in 2005 the NFL gave him and Tanenbaum permission to discuss the sale of the New Orleans Saints with team owner Tom Benson. However, following Hurricane Katrina, which ravaged New Orleans and severely damaged the Louisiana Superdome, Godfrey stated that "the Saints became a symbol for that community. Whatever deal there might have been disappeared." The Saints and Louisiana struck a deal to repair and renovate the Superdome, securing the Saints ties to New Orleans. In 2006 it was reported that Benson had rejected an offer of $1 billion from a group from Canada intending to relocate it to Canada. In 2005, then-NFL commissioner Paul Tagliabue stated that "it could be very likely that the next franchises in the NFL, beyond (the current) 32, are outside the U.S. Toronto would certainly be a candidate", though a year later he said that "I don't see any expansion on the horizon".
In 2006, Tanenbaum said that he and Ted Rogers, were "highly interested" in bringing an NFL franchise to Toronto and that he was going to "pursue it more rigorously" as soon as the NFL gave him the word. Later that year, new commissioner Roger Goodell said that international expansion was a "possibility" and that "the closer to the border, probably the more likely from a geographic standpoint." Toronto is located across Lake Ontario from the US. In 2007, Mark Waller, who was in charge of the NFL's international operations, was quoted as saying "ten years from now, I hope we will have a team ... in Toronto, playing within the NFL." The same year it was reported that the owners of the Argos, David Cynamon and Howard Sokolowski, fearing the NFL was preparing to move a team to Toronto, had developed plans to acquire an NFL team themselves and relocate it to Toronto in partnership with other CFL owners to ensure that it was done in a manner to protect the Canadian league. Later that year Rogers Communication would lease the Bills from Ralph Wilson for the Toronto Series. Rogers wouldn't comment on whether the step was a prelude to moving the franchise permanently to Toronto, saying "We didn't say we weren't interested, and we didn't say that we were." Wilson would not commit to keeping the team in Buffalo, saying "I can't speculate what's going to happen in the future," and adding "But don't worry. Don't worry right now. Does that answer your questions?"
In 2008, Maple Leaf Sports & Entertainment (MLSE) considered bringing a NFL team to Toronto and building them a new stadium, but abandoned the idea when they concluded that the project would not generate sufficient financial return to justify the significant cost of the project.
In March 2010 it was reported that a Toronto group was one of three parties attempting to buy the St. Louis Rams (the others being Shahid Khan and the Dave Checketts-Rush Limbaugh partnership), though the team was ultimately sold to Stan Kroenke.
In 2011, Toronto Mayor Rob Ford stated that he supported an NFL team in Toronto, but he ruled out public financing for a new stadium. He and his brother Doug Ford, a member of the Toronto City Council, planned on presenting a proposal to league owners regarding relocation of either the Jaguars or the Saints to Toronto, with the intention of building a new stadium.
In July 2013, Tim Leiweke, the new President of MLSE, which owns the Maple Leafs, Raptors and Toronto FC, stated of the organization's involvement in attracting an NFL team for Toronto, "it is a safe bet to say we’ll have some role there, to be determined, but that’s on our radar screen", and that "we’d go out of our way to make it work here." NFL rules prohibit corporations, such as MLSE, from having an ownership stake in a team. Leiweke later stated "We can’t own a team (per NFL rules), but we do have more expertise on how to build (stadiums) than anyone ... MLSE can play a role. We’re not the lead here. Our job is to augment whatever group may come together." It has been reported that MLSE is interested in building and managing the proposed NFL stadium, which it has already begun to design. The potential acquisition of the Argos by MLSE is thought to enhance the likelihood of Toronto receiving an NFL franchise, with former President of MLSE Richard Peddie saying "everything I'm hearing is that that the NFL is telling them that if you want an NFL team, you better make sure the Argos are okay." Leiweke has said that moving into a renovated BMO Field "will help turn [the Argos] around" and that "there's no way the NFL comes here without the CFL being unbelievably successful first.”
As far back as 2006 it had been reported that Toronto interests, led by Godfrey and Tanenbaum, were considering purchasing the Bills if they went on the market. Beginning in 2013 it was reported that Edward Rogers III, son of Ted Rogers, and a consortium of Tanenbaum and musician Jon Bon Jovi, who previously owned the Arena Football League's Philadelphia Soul, were considering biding for the franchise in hopes of moving it to Toronto. It was also reported that Rogers had conducted a feasibility study in early 2013 on the construction of a NFL stadium in Toronto.
The Bills were frequently mentioned as a team that could move to Toronto, due in part to Buffalo's proximity to the city. Niagara Falls, New York, located between the two cities, was also proposed as a compromise location. The Bills play in one of the league's smallest markets, and their games are often blacked out due to not being sold out, even with only 7 home games to sell during the Bills in Toronto series. The difficulties selling tickets, particularly late in the season when the weather is much poorer, was part of the reason why capacity of the team's home, Ralph Wilson Stadium, was decreased by 7,000 during its 1998 renovation. Western New York's economic difficulties have forced the Bills to keep their average ticket prices among the lowest in the NFL, and the team did not opt-in to the loosening of blackout restrictions in 2012.
Ralph Wilson Stadium is 40 years old. The team's lease was renewed in March 2013 through the 2022 season in conjunction with an agreement for a $130 million upgrade to the stadium, of which $95 million came from the county and state. The lease provides for a one-time $28.4 million option to buy out the final three years effective 30 July 2020. Outside of that window there is no opt-out, and a $400 million liquidated damages penalty is specified in case the team were able to break the lease in court. The lease stipulates that the team will not "sell, assign or otherwise transfer the team to any person who, to the Bills' knowledge, has an intention to relocate, transfer or otherwise move the team during the Non-Relocation Term" without government consent. However, the lease allows for an annual regular season game and a biennial pre-season game to be played in Toronto. The stadium is unlikely to be satisfactory for the Bills beyond the current lease term, with NFL Commissioner Roger Goodell describing the renovations as a "short-term solution". A committee has been formed by the Bills and various levels of government to study the possibility of a "substantial renovation" of the existing stadium or the construction of a replacement, but there are doubts that the Buffalo region can afford the $800+ million cost of a new stadium.
Then owner Ralph Wilson never expressed any desire for his family to inherit the team, and there was no long-term succession plan for the franchise. Following his death on March 25, 2014 the club was put into a trust and confirmed that it would be sold. It was widely presumed that Wilson's heirs would sell the team to the highest bidder to pay the significant inheritance tax, and that the franchise was thought to be worth more in a large market than in Buffalo. One expert put the value of the franchise in Buffalo at $950 million-$1 billion versus $1.5 billion in Toronto.
In July 2014 it was reported that Bon Jovi, Tanenbaum and the Rogers family had joined forces as equal partners to bid on the Bills, with Bon Jovi the proposed controlling owner. Though Tanenbaum and Rogers have significant wealth, it was suggested that the Toronto group's bid was limited by Bon Jovi's resources and his desire to be the controlling partner; NFL regulations require the controlling partner to have a 30% equity stake. Following protests by Buffalo area fans against the Toronto group, including radio stations banning Bon Jovi's music, Bon Jovi wrote a public letter to Bills fans saying that the group's objective was to "make the Bills successful in Buffalo" and committing to work with all levels of government "to identify the best possible site in the Buffalo area for a new stadium", though it noticeably did not explicitly promise to keep the team in Buffalo. The group had plans to meet with developers in the Buffalo region to discuss the construction of a new stadium. However, there was widespread skepticism about the sincerity of the group's pledge to keep the team in Buffalo, with a sports franchise relocation expert quoted as saying that if they did intend to move the club, "I would suggest never saying that publicly" due to the legal implications of selling the team to a group planning on relocating it. The group met with former Bills quarterback Jim Kelly, who has long advocated for the team remaining in Buffalo, about joining their ownerhip group in a move seen as an attempt to boost their public support, but Kelly declined due to concerns about their commitment to Buffalo.
The Toronto group was one of three that was reported to have submitted a final bid for the franchise. Other Canadians who explored purchasing the team include John Bitove, who was co-founder the Toronto Raptors, and the family of Francesco Aquilini, who owns the Vancouver Canucks, though it is unknown if they intended to move the team. It was reported that the trust was desirous of a quick and clean sale, which was no guarantee with the Toronto group due to the possibility under the non-relocation agreement of a lawsuit from the county or state blocking the sale if they thought they would move the team, as well as difficulty securing approval from the NFL due to the likelihood of negative fan reaction for several years until the franchise transfer could take place. Despite requests from the bank conducting the sale for a clear statement from the Toronto group that they would not move the team, only vague promises to work with local government to build a new stadium in Buffalo were provided. On 9 September 2014 it was announced that the franchise had been sold to Terrence Pegula, who committed to keeping them in Buffalo, for the reported price of $1.4 billion. The Toronto group bid $1.05 billion. The only other known bidder, Donald Trump, who also pledged to kept the team in Buffalo, bid much less, a reported $800 million.
With expansion unlikely in the near future, the best opportunity for Toronto to get an NFL team would be through relocation. The support of 24 of 32 NFL teams is required for the approval of the sale of a team. Likewise, any relocation would have to be approved by the same amount, though Al Davis moved the Oakland Raiders to Los Angeles in 1982 against the league's wishes. A relocation fee, which has been speculated to be $100–$200 million, could be charged by the NFL, though this could be offset by an increase in franchise value in a larger market.
As of 2014, the Oakland Raiders, San Diego Chargers, St. Louis Rams and Jacksonville Jaguars are considered to be the most movable franchises in the short term as they all have leases at their current stadium that either expire or they can escape from following the 2014 season. All are seen as potential candidates for relocation.
The Jacksonville Jaguars have been named as potential candidates for relocation to Toronto. The Jaguars play in one of the NFL's smallest markets and have had trouble selling out EverBank Field. In the 2009 season all but one of their home games was blacked out, though in following years ticket sales have improved considerably. The Jaguars lease runs until 2030, but they can opt out at any time by paying off the remaining years, which stood at more than $100 million in 2011. If the team can prove that it lost money one season, and had revenue less than the average of NFL teams in the next two seasons, the penalty is reduced.
The Rams' lease with the St. Louis Convention and Visitors Commission, which manages the Edward Jones Dome, stipulates that the stadium must be considered "top-tier" and superior to at least three-quarters of other NFL stadiums through the 2015 season. On July 2, 2013, the CVC announced that they were rejecting the Rams' renovation proposal to get the stadium up to this standard. If the issue is not resolved, the Rams' can break their lease following the 2014 season. Kroenke is believed to be considering moving the team to Los Angeles, as he has purchased land in the suburbs of that city.
The death of the Raiders' long-time owner Al Davis brought the team's future in Oakland into question. The team has insisted that they cannot remain in their current stadium, the O.co Coliseum, long term. They had been discussing constructing a new stadium on the grounds of the Coliseum, but this scenario was effectively ruled out after their co-tenants, the Oakland Athletics, signed a ten-year extension of their stadium lease. The Raiders' lease expires after the 2014 season, following a one year extension. Raiders management has met with officials in San Antonio, a less crowded market which already has an NFL-caliber stadium in the Alamodome, about possibly moving the team there. Los Angeles has also been mentioned as a potential destination due to the Raiders' history with the city and relative proximity.
Playing in one of the oldest facilities in the league, the Chargers have the right to terminate their lease with Qualcomm Stadium between Feb. 1 and May 1 every year until 2020. Their efforts to build a new stadium in both downtown San Diego and in the suburbs of Chula Vista, Escondido, Oceanside, and Mission Valley have all failed thus far.
Bringing an NFL team to Toronto would be quite expensive, with teams worth around $1 billion United States dollars. The variable exchange rate of the US dollar with the Canadian dollar could make the purchase price larger for a Canadian group. Additionally, an NFL team in Toronto would have to pay its players in U.S. dollars while collecting a significant fraction of its revenues in Canadian dollars, the same anomaly that other Canadian teams face.
Another major issue is the stadium. Although Godfrey believed that the Rogers Centre could be home to an NFL franchise, it is unclear if it would be suitable long-term. The retractable roof stadium has a capacity of 54,088 when configured for CFL games, which is larger than the NFL's 50,000-seat minimum but would be the smallest capacity stadium in the league during the regular season, the current smallest being Chicago's Soldier Field with 61,500 seats. While extra seats could be added due to the shorter NFL field (an NFL exhibition at the SkyDome in 1995 was attended by almost 55,800 fans), a large-scale expansion would require lowering the playing surface. As a result, a new football stadium, which would cost roughly $1 billion, would likely need to be built. Former mayor David Miller and current mayor Rob Ford have stated that funding for a new stadium would not come from the City of Toronto. It has been suggested that personal seat license could be sold to fund the new stadium. Godfrey said in 2006 "if you had a 60,000-seat stadium and sold (seats) for an average of $10,000, you'd raise $600 million ... you can build a hell of a stadium for that kind of money."
Another obstacle to Toronto acquiring an NFL teams is the league's determination to return a team to Los Angeles, which NFL official Eric Grubman calls "one of our top goals". This objective will likely take precedence over moving a team to Toronto. It has been suggested that if the league expands to LA it might need to grant a second expansion team to balance the league with an even number of teams, leaving the door open for Toronto to join LA. However, in 2005 Tagliabue said that "if there is expansion, I would think it would leave us with an odd number of teams for some period of time." He went on to say that "I don't see expansion in Canada as being related to what we might do in Los Angeles."
Relocation of a team to Toronto would face resistance from the Bills, since such a large portion of their fans come from Canada. Toronto falls within the NFL's definition of the Bills' home territory. In 1991, Wilson said "A Toronto club wouldn't hurt us". He went on to say "as far as I know, Toronto isn't in Buffalo's territory" and that "I wouldn't veto expansion to Toronto, anyway, even if I could." However, in 1995 Wilson was quoted as saying "Some day, I'm sure Toronto will have a team. It would be a great franchise up here .. but Toronto is Bills territory." When asked whether he expected financial compensation from a Toronto based NFL team, he replied "yes I do. A team in Toronto would definitely have an effect on our team". However, according to Godfrey, then-NFL commissioner Paul Tagliabue's position was that "there are no such things as territorial rights in the NFL."
Any NFL team that entered the Toronto market would have to deal with the Canadian Football League (CFL)'s Toronto Argonauts, as well as the Hamilton Tiger-Cats, who play in nearby Hamilton, Ontario, both of which—as well as the CFL—have objected to a NFL team in Canada. The NFL has been reluctant to hurt the CFL. Godfrey claimed that "the city is big enough ... they both could co-exist in the city." The World Football League (WFL) intended to place a franchise in Toronto known as the Toronto Northmen, but after the Canadian Parliament began debating the Canadian Football Act, which would have banned foreign football leagues from playing in Canada in an attempt to protect the CFL, the WFL moved the team to Memphis, Tennessee. Similar bills have been introduced to Parliament since the Bills Toronto Series was announced.
Since much of the NFL's revenue comes from television rights fees, there could be resistance from the networks to moving a team from the US to Canada, where the home town fans won't increase US television viewership. When Bassett was considering bringing a team to the city in the 1970s, he suggested a solution to this problem: "I say to the NFL teams, don't cut me in on your American TV revenues. Keep your millions to yourself. I say to them, just give me the TV rights for Canada." A report prepared for the Godfrey-O'Keefe group attempting to bring an NFL team to Toronto said that the then chief counsel of the NFL, and future NFL Commissioner, Paul Tagliabue had suggested that "any of the communities within the U.S. where the NFL might respond, will not significantly increase TV viewership" but that "a Canadian team would offer significant over-the-air and cable opportunities for new viewers, this would be particularly attractive to the NFL." In 1987, Commissioner Rozelle was asked "Do you think you'd be jeopardizing the value of your network TV package, by having one or more Canadian teams?" to which he responded "I wouldn't think so."
It as been suggested that one of the reasons the NFL would not want to put a franchise in Canada and risk putting the CFL out of business is that the CFL offers antitrust protection as a competing league. However, Rozelle said in 1987 that "I can't see where a league operating in Canada could possibly help us in any anti-trust trials."
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