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After Bert Bell's death in 1959, Rozelle was the surprise choice for his replacement as NFL commissioner.
According to Howard Cosell in his book I Never Played the Game, the owners took 23 ballots before settling on Rozelle as NFL Commissioner at a January 26, 1960 meeting.
When he took office there were twelve teams in the NFL playing a twelve game schedule to frequently half-empty stadiums, and only a few teams had television contracts.
The NFL in 1960 was following a business model that had evolved from the 1930s.
NFL sources credit Rozelle with bringing concepts such as gate and television profit-sharing, policies already in place in the rival American Football League, to the NFL.
The revenue-sharing was a major factor in stabilizing the AFL and guaranteeing the success of its small-market teams.
Rozelle recognized the value of such an arrangement, and following the lead of the rival AFL, Rozelle negotiated large television contracts to broadcast every NFL game played each season.
In doing so, he not only deftly played one television network against the other, but also persuaded NFL team owners — most notably Carroll Rosenbloom of the Baltimore Colts and George Preston Marshall of the Washington Redskins — to agree to share revenues between teams.
His business model, which emulated that of the AFL, was essentially a cartel that benefited all teams equally, from revenue sharing to the player draft.

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