Article: A LEAGUE IN TRANSITION // NFL Struggling With Realities Of New System Series: FREE AGENCY: A SPECIAL REPORT

NFL stands for National Football League, but in these days of free agency, it just as easily could stand for National Freedom League.

Since its inception in 1993, free agency has had a tumultuous effect on the NFL. It has sent players' salaries spiraling through the roof, made Redskins out of Cowboys and provided the rope for team executives to hang themselves.

"Free agency," said San Francisco 49ers president Carmen Policy, "has changed the very way we think and do business." Among the most significant changes: Salaries for starting players have increased more than 80 percent in the past three years. Last year, teams paid out $1.3 billion in player salaries. The average starter's ...

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