Honolulu, L.A., Salt Lake, Portland, Sacramento, San Antonio, Birmingham, Oklahoma City, Louisville, Connecticut (Hartford), Orlando. These are all good options. I'd look at mid-sized cities in the midwest and elsewhere if it were going to be developmental. Places like Wichita, Omaha, Boise, Helena (Montana), Des Moines (Iowa), Jackson (Miss), Columbia (SC), and elsewhere.
They should just try to partner with the NFL and have the new NFL Europe just be NFL2 or something, a minor league spring function. It'd be NFL and if run from March through June, that'd get fans through the long offseason. It'd give the NFL Network alot to show, too.
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