The Man Who Built the National Football League: Joe F. Carr

by Chris Willis

  1924 NFL (80 league games) = 292,444 fans (61 out of 80 games)

  1925 NFL (103 league games) = 680,361 fans (74 out of 103 games)

  1926 NFL (116 league games) = 490,800 fans (82 out of 116 games)

  1927 NFL (72 league games) = 557,100 fans (64 out of 72 games)

  1928 NFL (56 league games) = 440,400 fans (50 out of 56 games)

  1929 NFL (71 league games) = 554,600 fans (61 out of 71 games;

  1930 NFL (73 league games) = 513,000 fans (63 out of 73 games;

  Average Attendance per Game

  1921 APFA = 2,618 fans per game

  1922 NFL = 2,537 fans per game

  1923 NFL = 2,870 fans per game

  1924 NFL = 3,655 fans per game

  1925 NFL = 6,605 fans per game

  1926 NFL = 4,231 fans per game

  1927 NFL = 7,737 fans per game

  1928 NFL = 7,864 fans per game

  1929 NFL = 7,811 fans per game

  1930 NFL = 7,027 fans per game

  The first ten years had been a challenge for President Joe F. Carr, and he responded by building a solid foundation for the league. He established the NFL's "Constitution and Bylaws"; made peace with the colleges/ universities; recruited financially capable owners; set franchise fees, territorial rights, player contracts; had a working relationship with the press; set up the league's headquarters in his hometown; and hired competent officials to officiate games. The building blocks were being laid down by Carr and the other owners, but each group knew that more work needed to be done. The Roaring Twenties saw this growth, but the 1930s (right in the midst of the Great Depression) would see the league's foundation grow from being a small barn to a huge mansion.

  For the first time the league didn't hold a winter meeting, agreeing to only meet in the summer. Carr was given more time to go over applications for new franchises. In 1930 the NFL had eleven teams but two franchises weren't returning-Minneapolis and Newark were out-leaving the NFL with just nine teams. The nine franchises gave Carr on paper what he was looking for-franchises in large, populated cities with suitable playing fields:

  Brooklyn Dodgers (population 2,560,401)-Ebbets Field (32,000 capacity**)

  Chicago Bears (population 3,982,123)-Wrigley Field (38,000 capacity)

  Chicago Cardinals (population 3,982,123)-Comiskey Park (52,000 capacity)

  Frankford Yellow Jackets (population 1,950,961)-Frankford Stadium (15,000 capacity)

  Green Bay Packers (population 70,249)-City Stadium (15,000 capacity)

  New York Giants (population 1,867,312)-Polo Grounds (56,000 capacity)

  Portsmouth Spartans (population 81,221)-Universal Stadium (8,200 capacity)

  Providence Steam Roller (population 540,016)-Cycledrome (10,000 capacity)

  Staten Island Stapletons (population 158,346)-Thompson's Stadium (8,000 capacity)

  Capacity seating numbers are estimates because of additional and standing-room seating.

  Just like the previous ten years, franchise stability was at the top of Carr's to-do list, and adding to his headache, playing facilities were becoming a bigger issue when looking at a potential team. In the spring of 1931 Carr focused on two familiar cities to get his loop to an even number of franchises-Milwaukee and Cleveland. In the middle of May, Carr traveled to Milwaukee to meet with potential investors led by local sports promoter Eddie Stumpf.

  The city of Milwaukee had one previous team, the 1922-1926 Badgers, and made a strong case to field another. Speaking to the Milwaukee press Carr gave his opinion on the city's chances.

  I'm here today to interest a responsible promoter in a National League franchise. Unless I get the man I want, I would not care to have a National team in Milwaukee, for I know that irresponsible promoters have given the game a black eye here.

  Milwaukee is an ideal spot for a team. Why, the two games with the Green Bay Packers would draw huge gates and there would be a natural rivalry between the Bears and Cardinals in Chicago and the Milwaukee club. There you have six games a year for a Milwaukee team with little traveling expense involved.

  Milwaukee has had professional teams before but never before a team that has had the financial backing that this one will have. I expect that within two years, Milwaukee will be one of the best drawing teams in the league 2

  Carr was impressed by Stumpf-he was a football guy-but his ability to raise money and field a competitive squad was still a question mark, despite the vote of confidence to the press. Carr, as always, would paint a positive picture of professional football, especially when it came to the financial stability of the NFL. Even potential investors needed to appear stable. Carr then turned to his favorite city without an NFL team, the only city in his beloved home state that he thought could handle an NFL franchise-Cleveland.

  A month after visiting Milwaukee he traveled to the city by the lake, but not before he gave his family and daughter a "tiny" scare. Mary Carr was seventeen years old at this time and was about to finish high school and soon attend college at the St. Mary's College of the Springs in Columbus. In a two-page letter written by Mary Carr to her father, she explains her feelings toward her dear dad.

  Dearest Daddy,

  You'll never know how scared I was when the Union Station called to tell us that you forgot your tickets, you were in such a hurry and I'll bet you just left without your wallet-you carry that wherever you go.

  Are you all right-please, please-take care of yourself-don't rush around much remember you're not quite as young as you used to be!

  I have said 2 Rosaries for you-so I know you will be safe.

  Come home as soon as you can-I miss you so much. You know I love you more that I can tell you.

  Please be careful & take it easy-and I'll continue to pray for your success.

  Until I hear from you, please write-Be sure & get your proper rest,

  I remain your Lammy.

  Love + 1000,000,0000,000 kisses.3

  Mary's undying love for her father was obvious to the family, and Carr loved getting the attention of his little girl. Carr's tiny family crisis didn't slow him down as he made his way to Cleveland. For Carr the idea was to give the city another try mainly because of the presence of a new stadium, Municipal Stadium, which was to have a capacity of over 70,000. Cleveland had fielded teams in the NFL in 1920-1921 and again in 1923, a team won an NFL championship (in 1924) using former Canton players. But that team only lasted one more year. Another try in 1927 with star attraction Benny Friedman didn't last long either.

  So, in the midst of the Depression when every team was being challenged to stay afloat, Carr looked to Cleveland to be the NFL's newest franchise. Deep down Carr always believed in the city but he just couldn't understand the lack of support. He thought this time it would be different.

  I never before really felt Cleveland could be developed into a good town for our league but now things are different. After looking over your wonderful stadium I am genuinely enthusiastic. With that arena and our great players I don't see how the pro game could miss here now.

  Cleveland fans never will recognize pro football as the same game they witnessed in the old days. We not only have classy individual players, but every team drills daily just like the best college elevens. These fellows devote their full time to the game and have the very best of team work. Few college teams could give them a battle. If we come in here we will be packing the stadium within a couple of years-and that's no idle boast, for we know how our game has picked up in New York and other towns where the wise folks told us we never could make it pay.4

  Always the optimist, Carr gave the press an uplifting quote before leaving town. One thing was for sure: he was very impressed with the new football stadium, saying, "I have seen all the well known stadia in the country, but none of them comes up to this Cleveland one. It's in a class by itself."5 Cleveland now had the inside track to be the tenth NFL team, but the decision would not come until the summer meeting, scheduled for July 11-12 in Chicago at the Edgewater Beach H
otel.

  At 11:00 a.m. on the first day in the hotel's conference room, Carr and the executive committee-made up of Jim Dooley, Dr. Harry March, and Dr. Kelly-met early to outline the actions taken against the Bears (Joe Salvodi), Packers (Arnie Herber), and Spartans for using college players who hadn't graduated with their class. Each team was fined $1,000, and the committee agreed with the punishments.'

  The regular meeting started at 8:00 p.m. with all nine teams present. The owners agreed to a new bylaw stating "that the maximum number of franchises to be permitted in league be twelve (12), which number shall not be increased unless approved by two-thirds vote of the active members present at any meeting."7 With the country in the middle of a depression, the owners and Carr knew that the league wouldn't be expanded that much, so it was a good rule to adopt.

  The league awarded the 1930 NFL championship to the Packers and then gave a standing ovation to Tim Mara and the Giants for the "commendable manner in which the exhibition game was played at the close of the 1930 season between the Giants & Notre Dame All-Stars, for the unemployment fund. The entire assembly arose with a cheer." After the standing ovation the owners reelected Joe F. Carr and Carl Storck to their respective positions for another year.8

  On the second day the moguls put together the 1931 NFL schedule; agreed to use the Spalding J-5 football; raised the roster limit to twentytwo; and, probably most important, approved the city of Cleveland as the NFL's tenth franchise. The Cleveland Indians were a league-sponsored team that was to be managed by Jerry Corcoran. Carr's intention was to locate the franchise permanently in Cleveland after a suitable backer was found. The Indians would play mainly on the road and didn't take advantage of the big new stadium. Once again the city wasn't ready for professional football.

  After returning to Columbus, Carr was hit with some sad news, as John Nesser died at the age of fifty-five of a liver aliment. Carr recalled his former player and one of the great Nesser brothers: "That fellow didn't know what fear was. He was a rugged, aggressive player, a great field general and a sterling defensive player who tackled hard and surely."9 John was the first of the football-playing Nesser siblings to pass away.

  As the season approached, Carr released the 1931 NFL schedule, which would appear in newspapers nationwide and cause a big controversy in Green Bay and Portsmouth. In the September 11 edition of the Portsmouth Times, the paper listed that on Sunday, December 13, Green Bay was to play at Portsmouth. In the Stevens Point (Wisconsin) Daily Journal and other Wisconsin papers, there was no game listed on December 13 that had the Packers playing on the road in Portsmouth. The potential matchup would cause Carr a couple of sleepless nights.'°

  Before the season started big news came out of Chicago. Ed "Dutch" Sternaman, feeling the crunch of the Depression, decided to sell his interest in the Chicago Bears to his partner George Halas. "In the summer of 1931, my partner, Dutch Sternaman, couldn't meet mortgage payments on his apartment house and his gas station. His only asset was his partnership in the Bears. He asked if I would buy him out for $38,000, enough to meet his financial needs," recalled Halas in his autobiography. "I did want control of the Bears. My faith was boundless." Eventually Halas borrowed $5,000 from Ralph Brizzolara, Jim McMillen, and close friend Charlie Bidwill. He also borrowed $20,000 from the mother of former player George Trafton and a small amount from his mother. "On July 3, 1931, I did buy out Dutch. I paid him $25,000 in cash and promised to pay $6,000 on January 25, 1932 and the final $7,000 on July 31, 1932," remembered Halas.n

  When the NFL season got under way, Carr took the train south to attend the league's opening weekend at the Brooklyn-Portsmouth game. On a 100 degree day he would sit in his box on the fifty yard line watching a completely different Spartans team from the previous season. In 1931 the Spartans' front office brought in Potsy Clark as their new head coach at an annual salary of $5,000. Clark wasn't a big household name but had great credentials. After a solid playing career at Illinois under Bob Zuppke, he served as an assistant coach with Dr. Clarence Spears at Minnesota and also had head coaching stints at Michigan Sate, Kansas, and Butler.

  Potsy brought to the Spartans new ideas and very tight discipline. He also brought in another Clark. He signed former Colorado College AllAmerican Earl "Dutch" Clark, who was a truly remarkable player. He was a triple-threat quarterback-halfback, who became one of the best players in the league over the next decade. The Spartans also signed halfback Glenn Presnell (semipro Ironton Tanks), guard Ox Emerson (Texas), tackle George Christensen (Oregon), center Clare Randolph (Indiana), and end Bill McKalip (Oregon) to strengthen the squad. The Spartans were about to give the Packers a run for their money. In their opening game, the Spartans shut out the Dodgers 14-0 in front of a nice crowd of 7,000 fans.

  As the season began, Carr was faced with a minor infraction that needed his attention. Several teams complained to his office that the Packers were using more than the twenty-two players allowed. The new league rule stated that teams had to have just twenty-two players (not only meaning players in uniform but under contract) after the third league game. Carr threatened to fine the Green Bay club $500 and throw out all games played by the Packers after the third contest if they didn't adhere to the new rule.'2

  Carr called Curly Lambeau to explain the situation and gave him the ultimatum. Lambeau quickly reduced his squad by cutting five players, including Arnie Herber, who wasn't getting much playing time. The released players didn't stop the Packers as they continued to be the best team in the NFL. In 1929-1930 the Pack's main competition came from the New York Giants, led by quarterback Benny Friedman, but in 1931 the Giants slumped to 7-6-1 under new head coach Steve Owen. Owen would coach Mara's team for the next twenty-three years (1931-1953).

  Despite the disappointing season in New York, the Giants did find themselves a building block at center. Owen signed Mel Hein out of Washington State for $150 a game, and he would play the pivot for the next fifteen seasons and earn a place in the Pro Football Hall of Fame. The Chicago Bears, with the backfield of Red Grange and Bronko Nagurski, finished in third place with an 8-5 record. One of the high points in the Bears' season was the team's first ever "Ladies Day" at Wrigley Field on October 25. Halas put an advertisement in the local newspapers stating that female fans should "write to the ladies' ticket office at Wrigley Field, sending self-addressed, stamped envelopes to obtain two free ducuts for the game."" The promotion worked, as 26,000 fans came out to see the Bears-Frankford contest; the only thing Halas wasn't happy about was the 13-12 loss to the Yellow Jackets.

  The new Cleveland franchise got off to a very bad start, losing three of their first four games on their way to a 2-8 record, and it looked like it would be one and done for the Indians. A more shocking demise was that of the Frankford Yellow Jackets. The Philadelphia-based club had been one of the strongest members during the 1920s, consistently fielding strong teams and drawing a nice crowd despite ample competition from local colleges when they played home games on Saturdays due to the city's Blue Laws.

  But the Depression was killing them. After winning the 1926 championship, they badly slipped in 1927 and then rebounded the next two years. The Frankford Athletic Association (FAA), which owned the team, was suddenly not a good financial base. Whereas an individual owner like Tim Mara had his own money tied to the fate of the Giants, the FAA depended on the largesse of its members to help run the team. Once the Depression hit, too many members found it necessary to cut back on their contributions to the club.

  The hired talent also dropped in quality for the Jackets and it didn't help that, as always, Pennsylvania Blue Laws forced the team to play its home games on Saturdays opposite the college teams. The 1931 Yellow Jackets managed a scoreless tie with Providence in their second game, but there wasn't another bright spot until late October when they upset the Bears on "Ladies Day" in Chicago. Two games later, several thousand dollars in debt, the Yellow Jackets threw in the towel. One of Carr's bigcity teams was out of the NFL.

  Afte
r starting the season with five straight home games and five straight victories, the Portsmouth Spartans headed east to play four games on the East Coast. Potsy's team came up big, defeating Brooklyn, Staten Island, and Frankford and outscoring their opponents 53-7. Sporting an undefeated record (8-0), the Spartans rolled into their next game against the New York Giants at the Polo Grounds. In front of a crowd of 32,500-that included New York mayor Jimmy Walker-the Spartans suffered their first loss. The 14-0 setback left the Packers as the league's only unbeaten team.14

  The Pack won (9-0 record) the next week as the Spartans lost their second straight game, this time to the Bears. On November 11 the Spartans hosted a Wednesday night game against the Stapes with Carr in the crowd. The Spartans rebounded with a nice 14-12 win, and then on Sunday the race got a little tighter. The undefeated Packers suffered their first defeat, a 21-13 setback to the pesky Chicago Cardinals, as the Spartans won their second game of the week beating the weak Cleveland Indians.

  With four weeks to go, the Packers' lead was down to half a game with a potential season-ending matchup in Portsmouth on the last day of the season (December 13). That is what the Spartans and their fans thought:

  Packers 9-1 (four games left)

  Spartans 10-2 (two games left)

  On November 22 the Packers traveled to the Big Apple and played the Giants in front of an NFL season high of 35,000 fans. The Polo Grounds saw a very entertaining game as the Pack showed how great they were. Red Dunn connected with Johnny Blood on a fifty-three-yard touchdown pass to give the Pack an early 7-0 lead. But the Giants came roaring back in the second quarter behind the play of halfback Hap Moran, who scored a touchdown and kicked a field goal to give the Giants a 10-7 halftime lead.

  After a scoreless third period, Dunn threw his second touchdown pass of the game to give the Packers a thrilling 14-10 win. On the same day the Spartans suffered a tough 20-19 loss to the Cardinals. It now looked like Lambeau's team was clear for title number three in a row, barring a miracle. A miracle then happened.