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Goodell's not the reason for three Prime Time games each week nor the over-exposure on networks like ESPN and Fox Sports 1. Goodell's not the reason for games in London or Mexico or China. Goodell's not responsible for franchises holding municipalities hostage for Billion dollar stadiums.
That's all on the owners.
What Goodell IS responsible for is the hiring, firing, training and teaching of the referees. He's responsible for disciplining players and teams for breaking rules. He's responsible for player safety and for making the game fun.
In those terms, Goodell has failed miserably.
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