There's 1 scenario which may work: location-based conference play. Major League Baseball operated this way for decades B4 interleague play became a feature of the season. Only for the championship would conference champions play each other.
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Yes except you would need a great deal of buildout in the region. Say they set up a European "division". That could work but you would need more than 4 teams (as an example). Without a full slate of teams, makes it difficult to have the North American teams all battling it out.
Exactly. NFL-EU had 6-10 teams; even if it became part of the NFL proper, it would still have been missing too many teams.
OFF-TOPIC -- What if the NFL employed a relegation system, in which the bottom N teams moved to the spring league?
I am not sure if there is a need for the NFL to have a two tier system. They have a cap and national contracts. That is one league where parity is possible since the NY or Chicago doesnt have a huge advantage over Atlanta or Miami.
The same isnt true in MLB.
There will come a time when NFL's no longer at the top of the heap as a spectator sport, especially if economic conditions don't improve or NFL braintrust alienates its fan base. As a fan, do you really want 2C games involving putrid teams?