The Cleveland Browns relocation controversy—colloquially called "The Move" by fans—followed the announcement by Cleveland Browns owner Art Modell that his National Football League (NFL) team would move from its longtime home of Cleveland to Baltimore for the 1996 NFL season.
Subsequent legal actions by the City of Cleveland and Browns season ticket holders led the NFL to broker a compromise in which Modell agreed to return the Browns franchise to the league. The agreement stipulated that the Browns franchise, including its history, records and intellectual property, would remain in Cleveland. In exchange, the NFL agreed to grant Modell a new franchise in Baltimore (which was eventually named the Ravens) and the City of Cleveland agreed to build an NFL-caliber venue to replace the aging Cleveland Stadium.
Since it was deemed unfeasible for the Browns to play the 1996 season in Cleveland under such circumstances, the franchise was officially deactivated by the NFL in February 1996. The NFL agreed to re-activate the Browns by either by way of an expansion draft or by moving an existing team to Cleveland. In lieu of holding both a dispersal draft for the Browns and an expansion draft for the Ravens, the NFL allowed Modell to effectively transfer the Browns' existing football organization to the Ravens. As such, the Ravens are officially regarded by the NFL as an expansion team that began play in . By 1998, the NFL had ruled out moving any of the league's then-30 teams to Cleveland, committed to stocking the roster with an expansion draft, and sold the Browns franchise to Al Lerner, a former minority owner of the franchise under Modell, for $530 million. The re-activated Browns acquired players through this expansion draft and, in 1999, resumed play in a new stadium that replaced the demolished one.
This compromise, which was considered unprecedented at the time in North American professional sports, has since been cited in franchise moves and agreements in other leagues, including ones in Major League Baseball (MLB), Major League Soccer (MLS), the National Basketball Association (NBA), and the National Hockey League (NHL). While there have been other subsequent franchise moves with various franchise agreements, there have been two times when there was a compromise virtually identical to the Browns–Ravens agreement: when the San Jose Earthquakes of MLS suspended operations from 2006 and 2007 while their organization transferred to the new Houston Dynamo, and when the Arizona Coyotes of the NHL suspended operations in 2024 while their organization transferred to the new Utah Mammoth.
Dissatisfaction with Cleveland Stadium In 1975, knowing that Municipal Stadium was costing the city more than $300,000 a year to operate, then-Browns owner Art Modell signed a 25-year lease in which he agreed to incur these expenses in exchange for quasi-ownership of the stadium, a portion of his annual profits, and capital improvements to the stadium at his expense. Modell's new company, Stadium Corporation, paid the city annual rents of $150,000 for the first five years and $200,000 afterwards.
Modell had originally promised never to move the Browns. He had publicly criticized the Baltimore Colts' move to Indianapolis, and had testified in favor of the NFL in court cases where the league unsuccessfully tried to stop Al Davis from moving the Oakland Raiders to Los Angeles. However, Modell refused to share suite revenue with the Cleveland Indians, who also played at Cleveland Stadium at that time, even though some of the revenues were generated during baseball games.
In 1990, voters approved a ballot measure to build a new sports complex, the Gateway Sports and Entertainment Complex, which included a new baseball-only stadium and an arena. Modell, believing that his revenues were not endangered, decided not to participate in the Gateway Project that built Jacobs Field for the Indians and Gund Arena for the Cleveland Cavaliers. Modell's assumptions proved incorrect, and Stadium Corporation's suite revenues declined sharply when the Indians moved to Jacobs Field in 1994. Soaring player salaries put additional financial pressure on the Browns' owner. Modell claimed to have lost $21 million between 1993 and 1994.
Financial considerations
Due to the massive and relatively consistent increase in the value of NFL franchises since the league's founding in 1920, the league has a long history of owners whose net worth is largely accounted for by the value of their football teams. Even today, many of the league's clubs are owned by businesspeople (or their heirs) who, while relatively well-off by the standards of the time, founded or purchased a football team which has since appreciated in value at a far higher rate than whatever other business interests they might have originally been involved in. However, even with those considerations in mind, Modell's net worth had always been relatively meager compared to most other principal owners in the NFL, despite his long influence in league circles.
The Browns' capitalization problems dated to their founding as a charter All-America Football Conference (AAFC) franchise by legendary coach Paul Brown. Modell was recruited in large part because the NFL was desperate to avoid any perception of franchise instability within its ranks, especially in the face of competition with the then-fledgling (but well-financed) American Football League (AFL). As Cleveland had been decisive in ensuring the AAFC's relative success and eventual partial merger with the older league, the NFL was keen not to lose the market to a rival leagueas it had in 1946 when it allowed the Cleveland Rams to move to Los Angeles. Modell's purchase of the team was thus approved by the NFL under conditions that the league might otherwise have rejected. It was among the most heavily leveraged purchases in league history: most of the funds used to purchase the team were borrowed.
On the one hand, the eventual negotiation of a merger with the AFL ended the prospect of expensive bidding wars for players in an era when true free agency did not exist, thus allowing the Browns to remain competitive on the field despite a tight budget. Nevertheless, Modell spent most of his tenure as Browns owner in financial difficulty, especially as interest rates soared and the costs of operating an NFL team escalated with the value of the league's franchises. As the 1960's came to a close, the Browns appeared in the NFL's final pre-merger championship game, yet Modell's finances were so perilous that they were a major factor in his decision to lobby for the Browns (along with the Pittsburgh Steelers and Baltimore Colts) to be moved to the American Football Conference upon completion of the merger in 1970 in exchange for financial compensation from the other NFL and AFL owners. However, the $3 million payout (equal to approximately $ million today) ultimately proved woefully insufficient to clear the team's growing debts.
The Browns' financial situation led Modell to take legally questionable measures to remain solvent. For example, he tried to transfer liability for several personal bad loans to the Browns organization, prompting one of his minority partners to sue him. As early as 1983, Modell concluded that he would never be able to pay all of his debts before his deal with the city expired. The loss of revenue from the Indians hit Modell especially hard. After realizing how much revenue was lost from the Indians moving out of Cleveland Stadium, he requested a referendum be placed on the ballot to provide $175 million in taxes to refurbish the outmoded and declining Cleveland Stadium.
Baltimore had previously attempted to woo the Cincinnati Bengals and owner Mike Brown into moving his team earlier in the decade, with Brown even visiting with a group in the city in his own attempts to get a new venue for his team.
Announcing the move
On December 12, 1994, Modell told his board that he did not believe a referendum to raise the sin tax would pass, as the proceeds would have been used to either fund a renovated Municipal Stadium or a new stadium. Modell then informed them that if the referendum failed, he would be finished in Cleveland, and would have no choice but to move the Browns.
Entering the 1995 season, the Browns, coached by Bill Belichick, were coming off a playoff season in 1994 in which the team finished 11–5 and advanced to the second round of the playoffs. Sports Illustrated predicted that the Browns would represent the AFC in Super Bowl XXX at the end of the 1995 season, and the team started 3–1, but they then lost their next three games.
While this was happening, Browns minority owner Al Lerner was privately prodding Modell to consider moving to Baltimore. He urged Modell to contact John Moag, the newly installed Maryland Stadium Authority chairman. Earlier in the year, the league had told Moag that Baltimore would get a team (either an expansion team or an existing team that would be moved from another city) if a stadium were already in place.
Elected officials in Baltimore and Maryland were still smarting from the Colts moving to Indianapolis after the 1983 season, and refused to commit any money towards a new stadium unless the Stadium Authority secured a deal with a team. With this in mind, Moag made several calls to Modell that went ignored for much of 1995. Finally, in late July, Modell allowed Lerner to meet with Moag, provided that Lerner stress that Modell was not serious about moving. At that meeting, Moag laid out an offer in which the Browns would get the rights to a new, $220 million stadium if they moved to Baltimore. However, Moag told Lerner to take the offer back to Modell only if he was serious about considering a move.
Negotiations continued in secret until September, when Moag told Lerner that if the Browns were serious about moving, "you need to act and act now." A few days later, Lerner, Modell and Moag met at Lerner's Midtown Manhattan office. At that meeting, Moag presented a memorandum of understanding that was almost identical to what he'd offered the Cincinnati Bengals a few months earlier: a deal that ultimately led Cincinnati voters to pass a referendum that built what would become Paul Brown Stadium. Indeed, some paragraphs still referred to "Cincinnati" rather than "Cleveland." Modell still had some trepidation about the deal, but signed after Moag assured him that Baltimore fans would hail him as a hero.
Soon afterward, Modell told San Francisco 49ers president Carmen Policy that he was moving the Browns to Baltimore. Policy had been well aware that relations between Modell and Cleveland had become rather strained, and was secretly working with Pittsburgh Steelers owner Dan Rooney to keep the Browns in Cleveland. Policy urged Modell to sit down with NFL Commissioner Paul Tagliabue in hopes of resolving the situation, but Modell rejected it out of hand.
On November 6, 1995, with the team at 4–5, Modell announced in a press conference at Camden Yards that he had signed a deal to move the Browns to Baltimore for the 1996 season. The team would play at the Colts' former home (Memorial Stadium) while the new stadium was being built. Modell said he felt the city of Cleveland did not have the funding nor political will to build a first-class stadium. The very next day, on November 7, Cleveland voters overwhelmingly approved the aforementioned tax issue to remodel Cleveland Stadium.