# Former NFL Players: Disabilities, Benefits, and Related Issues > Briefs, arguments, decisions, and more. URL: https://www.frixlaw.com/law-library/documents/crs%3ARL34439 ## Record - **Collection:** Congressional research report - **Document type:** CRS Report - **Published:** April 8, 2008 - **Citation:** RL34439 ## Text Order Code RL34439 Former NFL Players: Disabilities, Benefits, and Related Issues April 8, 2008 L. Elaine Halchin Analyst in American National Government Government and Finance Division Former NFL Players: Disabilities, Benefits, and Related Issues Summary Professional football is a very popular sport, and the physical nature of the game of football is part of its appeal, but, at the same time, playing the game can exact a physical and mental toll on players. Violent collisions, as well as other aspects of the sport, can and do cause injuries. Each week during the season, the National Football League (NFL) releases an injury report that lists, for each team, players who are injured, the type or location of the injury (for example, “concussion,” “knee,” or “ribs”), and the players’ status for the upcoming game. During the 2007 season, aside from weeks one and eight, at least 10% of NFL players were identified each week as being injured. Players’ injuries and current health conditions (for example, excess weight and sleep apnea) might have long-term consequences for their health, meaning that today’s injury might become a chronic health problem or disability during retirement from the NFL. The issue has received considerable attention from Congress, including hearings in both chambers. Through collective bargaining agreement (CBA) negotiations and other discussions, the NFL and the NFL Players Association (NFLPA) have established a number of benefits, including retirement benefits (that is, a pension), severance pay, total and permanent disability benefits, and an annuity program. Some benefits are available to all players, while other benefits are available only to players who played in the NFL during certain years. Additionally, some benefits have eligibility requirements. Funds for benefits that are included in the CBA come from the portion of the league’s total revenues that is allocated to the players. Apparently, the NFL and the NFLPA determine how to fund other benefits. The NFL and the NFLPA have taken steps to promote the health and safety of players. The league has established several committees, such as the Mild Traumatic Brain Injury (MTBI) Committee, and, through NFL Charities, awards grants for medical and scientific research related to health and safety issues. The NFLPA has a medical advisor and a performance consultant, and there is an NFL-NFLPA joint committee on player safety. The subject of injuries, disabilities, and benefits is a complex one, and there are a variety of issues surrounding this subject. For example, it has been argued that the way compensation is structured within the NFL might induce an individual to play while injured instead of seeking medical treatment. The oldest retired players might make up a subset with exceptional financial and medical needs, because they (1) might not have been protected as well as current players are; (2) might have received medical care that, while the best available at the time, was not as effective as the care available today; and (3) are not eligible for all of the benefits available to current players. Another issue involves MTBI research and whether multiple concussions might have long-term effects. The NFLPA proposed three legislative options in 2007. Other possibilities include establishing one or more ombudsman offices or taking steps to mitigate the economic risk of injuries and disabilities. This report will be updated as events warrant. Contents Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 The Game of Football and the Health of Players . . . . . . . . . . . . . . . . . . . . . . . . . . 4 Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 The Nature of the Game of Football . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5 Health Problems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12 NFL and NFLPA Benefit Programs and Plans . . . . . . . . . . . . . . . . . . . . . . . . . . 18 History of Benefits . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18 How Benefits Are Funded . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24 Benefits for Former Players . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28 NFLPA Retired Players Department . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40 Players Assistance Trust (PAT) Fund . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41 The Alliance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45 Other Efforts to Aid Former Players . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48 Selected Organizations and Websites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48 Active Players’ Efforts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49 NFL and NFLPA Health and Safety Initiatives . . . . . . . . . . . . . . . . . . . . . . . . . . 50 NFL Injury and Safety Panel . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50 NFL Cardiovascular Health Committee . . . . . . . . . . . . . . . . . . . . . . . . . . . 51 NFL Medical Research Grants . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 52 NFL Mild Traumatic Brain Injury Committee . . . . . . . . . . . . . . . . . . . . . . . 53 NFL and NFLPA Education Efforts for Players . . . . . . . . . . . . . . . . . . . . . 54 NFLPA Medical Consultant and Performance Consultant . . . . . . . . . . . . . 55 NFL and NFLPA Joint Committee on Player Safety and Welfare . . . . . . . 56 Discussion of Selected Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 58 Injuries and Financial Considerations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 58 Selected Challenges for Some Retired Players . . . . . . . . . . . . . . . . . . . . . . 74 Total and Permanent (T&P) Disability Benefit . . . . . . . . . . . . . . . . . . . . . . 76 Is There a Subset of Former Players with Exceptional Needs? . . . . . . . . . . 86 What Is Known about Injuries and Possible Long-Term Consequences? . . 92 Studies on Possible Long-Term Effects of MTBI . . . . . . . . . . . . . . . . 92 Susceptibility to an Additional MTBI . . . . . . . . . . . . . . . . . . . . . . . . . 97 Chronic Traumatic Encephalopathy (CTE) . . . . . . . . . . . . . . . . . . . . . 98 NFL’s Approach to MTBI . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 104 Funding for the Retirement Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 110 What Is the Extent of the NFLPA’s Capacity? . . . . . . . . . . . . . . . . . . . . . 112 Medical Care for Active Players . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 113 Access to Medical Records . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 113 Arrangements for Medical Care and Treatment . . . . . . . . . . . . . . . . . 114 Workers’ Compensation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 118 Possible Courses of Action . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 119 NFLPA’s Suggestions for Legislative Action . . . . . . . . . . . . . . . . . . . . . . 119 Establish Federal Standards for Workers’ Compensation . . . . . . . . . 120 Permit Unions to Manage Their Benefit Plans . . . . . . . . . . . . . . . . . 120 Eliminate the Requirement for the Disability Initial Claims Committee (DICC) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 121 Other Suggestions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 122 Mitigation of Economic Risk . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 122 Independent Studies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 123 Data: Collection, Quality, and Access . . . . . . . . . . . . . . . . . . . . . . . . 124 Establish an Ombudsman Office . . . . . . . . . . . . . . . . . . . . . . . . . . . . 126 Concluding Observations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 126 Appendix A. Glossary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 128 Appendix B. NFL and NFLPA Studies Concerning Players’ Health . . . . . . . . 134 Planned or Ongoing Studies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 136 Appendix C. Members of the Mild Traumatic Brain Injury Committee and Retired Player Study Investigators . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 138 MTBI Committee . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 138 Retired Player Study Investigators . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 139 Appendix D. Acronyms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 141 List of Tables Table 1. The NFL’s Major Television Rights Contracts, 2006-2013 . . . . . . . . . . 1 Table 2. Number of Players Listed on the NFL’s Injury Report, 2007 Season . . . 7 Table 3. NFL Players’ Injuries by Type of Injury, 1997-1999 . . . . . . . . . . . . . . . . 9 Table 4. Selected NFL-NFLPA Benefits as of October 2007 . . . . . . . . . . . . . . . 30 Table 5. Players Assistance Trust Fund Grants, by Grant Type, 1991-2007 . . . . 43 Table 6. Players Assistance Trust Fund Grants, by Year, 1991-2007 . . . . . . . . . 43 Table 7. NFL Charities’ Grants for Research Related to Players’ Health, 2003-2007 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53 Table 8. Signing Bonuses Among NFL Players, 1993-1997 . . . . . . . . . . . . . . . . 64 Table 9. Signing Bonuses Among NFL Players, 1998-2002 . . . . . . . . . . . . . . . . 66 Table 10. Signing Bonuses Among NFL Players, 2003-2007 . . . . . . . . . . . . . . . 68 Table 11. Range of Percentage of Total Players Who Received a Signing Bonus, by Signing Bonus Amount . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 70 Table 12. Total and Permanent Disability Payments by Category . . . . . . . . . . . . 78 Table 13. Selected Criteria for Football Degenerative and Inactive Categories . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 80 Table 14. Effect of 15-Year Threshold on Eligibility for “Football Degenerative” Benefits . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 81 Table 15. Number of Players Who Are Receiving or Have Received T&P Benefits, as of October 23, 2007 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 83 Table 16. Benefits Available to Players . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 89 Table 17. Recipients of NFL Charities Grants for MTBI and Related Research, 2003-2007 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 106 Former NFL Players: Disabilities, Benefits, and Related Issues Introduction1 Professional football, notably the National Football League (NFL), is the favorite sport of many in the United States.2 Recognized by some as “America’s most popular spectator sport,” the NFL’s “popularity has never been greater: in the past 20 years, football has sharply widened its lead over baseball as America’s favorite professional sport, according to a Harris Poll in December [2005]. Fans choose football over baseball, basketball and auto racing combined....”3 The popularity of the sport also is reflected in the league’s major television rights deals, which are summarized in Table 1. Table 1. The NFL’s Major Television Rights Contracts, 2006-2013 Network or Cable Channel Years Covered by the Contract Total Rights Fee Average Annual Value CBS and Fox 2006-2011 $8.0 billion $1.3 billion NBC 2006-2011 $3.6 billion $600 million ESPNa 2006-2013 $8.8 billion $1.1 billion $20.4 billion $3.0 billion Total Source: Sports Business Resource Guide & Fact Book, 2006 (Charlotte, NC: Street and Smith’s Sports Group, 2005), p. E-120. a. A comparable television rights deal between Major League Baseball and ESPN, for the period 2006-2013, has a total rights fee of $2.37 billion and an average annual value of $296 million. (Sports Business Resource Guide and Fact Book, 2006, 2005, p. E-120.) Throughout the documents that govern retirement and disability benefits, “active” players are distinguished from inactive, or retired, players. In this context, “active” players generally are those under contract to a club or between teams; the 1 This report was prepared at the request of the House Committee on the Judiciary. 2 A list of acronyms used in this report may be found at Appendix D. 3 Hoover’s, Inc., “National Football League,” Dec. 11, 2007, available at [http://www.lexisnexis.com/]; and Steven Levingston, “NFL Plays Smash-Mouth Ball When It Comes to Branding,” Washington Post, Feb. 5, 2006, p. A7. CRS-2 term roughly corresponds to the bargaining unit under the CBA. The term “active player” also can arise in distinguishing among categories of players who are employed by teams. For example each team is permitted a maximum of 53 players on its roster for a game. This limited roster comprises an Active list, not exceeding 45, and an Inactive list. However, “active players,” as used generally in this report extends beyond roster players those players employed while in other categories, injured reserve, for example. Active and future players are represented by the NFL Players Association (NFLPA), which is the sole and exclusive bargaining representative for players.4 The average length of an NFL career is three and one-half seasons, and the average salary (which may include other types of compensation; see below for additional information) is $1.1 million.5 Including both vested (i.e., having earned a sufficient number of “credited seasons” to qualify for retirement benefits) and nonvested players, the number of retired (or former) players is approximately 13,000. Vested players number approximately 7,900.6 Although, under the collective bargaining agreement (CBA), the NFLPA does not represent former players, it does negotiate with the NFL for benefits for retired players.7 Playing professional football can, for some individuals, exact a significant physical, and, in some cases, mental, toll. Yet, the excitement of big hits is part of the attraction of the sport. In 2003, ESPN introduced a segment, “Jacked Up,” that featured the five biggest hits from the weekend’s games, except for plays that 4 National Football League and NFL Players Association, NFL Collective Bargaining Agreement, 2006-2012, Mar. 8, 2006, p. 3. The term “future players” refers to individuals who had been previously employed by an NFL team and who are seeking employment with an NFL team; all rookie players, once they have been selected in the current year’s draft; and all undrafted rookie players, once they begin negotiations with an NFL team. (Ibid.) 5 NFL Players Association, “FAQs: NFL Hopefuls FAQ,” available at [http://www.nflpa.org/Faqs/NFL_HopefulsFaq.aspx] as of Jan. 14, 2008, on file with the author. The NFL Players Association established a new website in Mar. 2008, replacing the original url [http://www.nflpa.org], with this url: [http://www.nflplayers.com]. (NFL Players Association, “Ready, Set, Click! NFLPA to Launch New Website This Month,” Mar. 6, 2008, available at [http://www.nflplayers.com/user/content.aspx?fmid=178&lmid= 443&pid=310&type=n].) Following this change, some of the NFLPA documents obtained from the previous website apparently are no longer readily accessible at the new website. Citations for these documents include the date the author accessed and printed the relevant document. However, some of these documents are pdf documents, which means that the dates they were accessed via the previous NFLPA website do not appear on the document. The citations for this particular group of documents notes the month and year they were downloaded. Regarding documents obtained from the previous website that are accessible at the new website, the current url is provided. 6 Letter from Eugene Upshaw, Executive Director, NFL Players Association, to Reps. John Conyers, Jr., Lamar S. Smith, Linda T. Sanchez, and Christopher B. Cannon, Nov. 5, 2007, p. 8. 7 A Supreme Court ruling stated that “the ordinary meaning of ‘employee’ does not include retired workers....” (Allied Chemical & Alkali Workers of America, Local Union No. 1 v. Pittsburgh Plate Glass Co., Chemical Division, 404 U.S. 157 (1971), at 392.) CRS-3 resulted in an injury or a penalty.8 Television news broadcasts often carry video replays of especially hard collisions. Some players achieve renown as “big hitters.” Despite the popularity of the physical nature of the game, it is balanced by concern for the players. One sports journalist has written of the game’s violence, “Players live for it, fans love it, media celebrate it — and all bemoan its devastating consequences. The brutal collision of bodies is football’s lifeblood, and the NFL’s biggest concern.”9 For the purposes of this report, distinctions are made between injuries, disabilities classified as such under the Bert Bell/Pete Rozelle NFL Player Retirement Plan (“retirement plan”), disabilities generally, and chronic health problems. An injury is damage that occurs to an individual’s body, in this case a professional football player, such as an abrasion, or a sprained ankle, torn muscle, or concussion. A retirement plan disability is a medical condition that qualifies as a disability under the NFL and NFLPA retirement plan. (See below for additional information about the different types of disabilities for which benefits are provided under the retirement plan.) The term “disability” also may be interpreted more broadly to include any inability or incapacity. Thus, a retired player who is incapable of performing one or more particular activities or functions, but does not receive any retirement plan disability benefits, also may be considered to be disabled.10 The phrase “chronic health problems” refers to conditions or illnesses that interfere with the activities of daily living, but do not rise to the level of rendering a player unable or incapable of performing an activity or function. For example, as reported by the Los Angeles Times in 2000, Joe Montana, former quarterback for the San Francisco 49ers, “does not qualify for disability payments ... [and appears] to be living a healthy, active postcareer life, [but he] suffers from an aching knee that makes [playing] golf painful, a numb foot that makes walking awkward and occasional blurred vision from too many hits to the head.”11 Although the focus of this report is on former players, and their health problems and benefits, the report also covers certain issues involving active players. The health of retired players derives in part from the injuries and medical conditions (such as excessive weight, if not obesity) that they may have experienced during their playing days. Accordingly, some of the conditions, terms, or policies under which active players perform might have some bearing on their current and long-term health. The issue of former players and their health and benefits has received considerable attention from Congress, including hearings in both chambers. 8 Tim Layden, “The Big Hit,” Sports Illustrated, July 30, 2007, p. 58. 9 Ibid., p. 53. 10 For example, a former player who is disabled but does not receive any disability benefits might not have applied for benefits; might not be eligible for disability benefits; might have applied and have his application pending; or might have applied, but had his application denied. 11 Steve Springer, “After Care: Medical Benefits; Disability Payments Ease Pain; Unlike in Years Past, Former Players Who Are Totally and Permanently Disabled Receive Monetary Compensation,” Los Angeles Times, Jan. 25, 2000, p. D8. CRS-4 The next section describes the physical nature of the game of football, injuries, and health problems and is followed by a section on benefit programs and plans available to former players. After an overview of other organizations’ efforts to aid former players, this report examines the NFL’s and the NFL Players Association’s health and safety initiatives, examines selected issues, and discusses possible courses of action. The Game of Football and the Health of Players Introduction Comprehensive data about the health of former players apparently are not collected and maintained, either by the NFLPA or the NFL, or by a third party. The NFLPA is not aware of “any source of general data on the current health” of the 7,900 former players who are vested.12 Individual teams may have some information, but, apparently, the Retirement Plan Office does not.13 Neither the players association nor the league collects data on number or percentage of players who retire because of an injury or injuries.14 The NFLPA notes: [Players] may leave the game for several reasons. Statistics about why NFL players retire can be misleading. Most careers are not affected by a muscle or bone problem that causes a person to be one-half of a second slower in the 40yard dash. In the NFL, that half-second could cost a player his job. The vast majority of players who leave the NFL, including those who leave because of injury, are in most respects quite healthy and capable of other employment.15 Although the last statement in this passage may be accurate, confirmation is difficult due to the dearth of evidence, and possibly some of the individuals who are “quite healthy” upon leaving the NFL might develop football-related disabilities later in life. The NFL offers several possible reasons individuals retire from professional football: “Players retire for many reasons: because they do not make the team, because they wish to start their second career, because they lose the desire to play, or because they wish to spend more time with their families.”16 Nevertheless, the NFL has some information on this subject which suggests that, for the period 19942004, at least 181 players retired for health reasons. This figure is 4% of the “4,362 players who earned a Credited Season” during the same period and who “appear to 12 Letter from Upshaw to Reps. Conyers, Smith, Sanchez, and Cannon, p. 8. 13 Ibid., p. 7. The Retirement Plan Office is responsible for administering the retirement plan which is part of the collective bargaining agreement. 14 Ibid., p. 13; Letter from Roger Goodell, Commissioner, National Football League, to Reps. John Conyers, Jr., and Lamar S. Smith, Nov. 2, 2007, p. 9. 15 Ibid. 16 Ibid. CRS-5 have retired.”17 The NFL was able to identify these 181 players because they received additional compensation after they “did not pass their pre-season physical[s] due to [injuries] sustained during the prior season and thus were unable to play.” Not included in this count are players who decided to retire because of their injuries and thus did not submit to a pre-season physical. Without comprehensive, complete, detailed, and accurate data, including the number and extent of all disabilities and chronic health problems, it is difficult to know the health status, or employment or financial status, of all former players, and not just those who already receive, in particular, disability benefits.18 As suggested above, some former players may have chronic health problems or may suffer from disabilities, as broadly construed, but do not receive any disability benefits from the retirement plan. The absence of information about this group of retirees makes it difficult to determine whether any of them do not receive sufficient assistance, and also might hamper efforts to determine the effects or consequences of football-related disabilities. Despite the lack of data on the health of former players, however, descriptive information can provide some insight into the nature of professional football and football injuries, which, for some former players, might have long-term health consequences. The Nature of the Game of Football Physical contact is integral to the game of professional football. For some, though, the phrase “physical contact” is an inadequate description. Notably, Mike Ditka, a former player and coach in the NFL, stated, during a congressional hearing, that “[i]t is not a contact sport, it’s a collision sport.”19 Timothy Gay, a professor of physics at the University of Nebraska and author of Football Physics: The Science of the Game, asks, What is the force of that hit? Well, you’re talking about classical physics, which puts us in the province of Isaac Newton: Force equals mass times acceleration. What you come up with in this case is that each man exerts about 1,500 pounds of force, or three quarters of a ton, on the other. Which is why they call football a contact sport.20 17 Letter from Goodell to Reps. Conyers and Smith, p. 9. 18 In some cases, an individual’s health status and financial status may be related. 19 U.S. Congress, Senate Committee on Commerce, Science and Transportation, “Oversight of the NFL Retirement System,” statement of Mike Ditka, unpublished hearing, 110th Cong., 1st sess., Sept. 18, 2007, p. 99. 20 Layden, “The Big Hit,” pp. 55-56. See also Timothy Gay, Football Physics, The Science of the Game (Emmaus, PA: Rodale Inc., 2004), pp. 35-36; and Gene Wojiechowski and Chris Dufresne, “Life Expectancy Low, Some Say: Football Career Is Taking Its Toll on NFL’s Players,” Los Angeles Times, June 26, 1988, available at [http://www.lexisnexis.com/]. CRS-6 At Virginia Polytechnic Institute and State University (Virginia Tech), a mechanical engineering professor put impact recorders in football players’ helmets in 2003. The devices recorded 3,300 hits to the heads of players in 10 games and 25 practices. He also found that “[a] typical skull absorbed 50 wallops measured at 40 times the force of gravity....”21 Players collide during training camp, practice, pre-season, regular season and post-season games.22 Some players tear muscles and ligaments, break bones, and lose consciousness.23 Each week during the season, the NFL releases an injury report that lists, for each team, players who are injured, the type or location of the injury (for example, “concussion,” “knee,” or “ribs”), and the injured player’s status for the upcoming game (for example, “out,” “questionable,” or “probable”).24 Table 2 includes data for each week in the 2007 season. The data in this table may not provide an accurate count of the number of injuries sustained by NFL players for the following reasons: (1) only one type of injury or injury location was listed on the report, but some players listed may have had more than one injury; (2) a player may not have reported his injury or injuries to his team’s medical staff, and, hence, his name did not appear on the report; (3) a player may have reported his injury or injuries to the medical staff, but the type or severity of the injury or injuries did not preclude him from playing; and (4) a player whose injury status kept him from playing in games for more than one week could be listed on the injury report each week. More accurate injury data are submitted to the NFL’s Injury Surveillance System (see below for additional information) by each team’s medical staff. 21 Carl Prine, “Extra Pounds Cause Trouble Later in Life,” Pittsburgh Tribune-Review, Jan. 9, 2005, available at [http://www.pittsburghlive.com/x/pittsburghtrib/news/specialreports/ specialnfl/s_291051.html]. 22 Carl Prine, “Bloody Sundays,” Pittsburgh Tribune-Review, Jan. 9, 2005, available at [http://www.pittsburghlive.com/x/pittsburghtrib/news/specialreports/specialnfl/ s_291033.html]. 23 Peter Carlson, “For the NFL’s Retirees: Know Pain, No Gain,” Washington Post, Aug. 21, 2007, p. C7; and Paul Gutierrez, “NFL Injuries; Pain Game,” Los Angeles Times, Jan. 25, 2000, available at [http://www.lexisnexis.com/]. 24 According to a news article, “The [NFL’s] injury lists have roots in two mandates: State workers’ compensation laws and federal reporting requirements force teams to record injuries. Because a paper trail is needed to substantiate a potential on-the-job disability or safety issue, broken bones, joint tears, ruptured muscles, head wounds and other ailments are written down. NFL bylaws also require teams disclose to their opponents their players’ pre-game injury status so coaches can prepare strategies.” (Prine, “Bloody Sundays.”) Regarding an injured player’s status, Prine reported that “even a player marked ‘probable’ for Sunday’s game has a ‘serious’ injury, much as a bad fall or a degenerative bone condition would be considered serious on a workers’ compensation filing. ‘As a fan, maybe you don’t think it’s serious because the player is playing, but [the injury] can still be serious,’ said Dr. Derek Jones, one of the nation’s foremost orthopedic surgeons at the Ochnser Clinic in New Orleans.” (Ibid.) CRS-7 Table 2. Number of Players Listed on the NFL’s Injury Report, 2007 Season Week During the Season Number of Playersa Percentage of Playersb 1 132 8% 2 167 10% 3 202 12% 4 208 12% 5 207 12% 6 179 11% 7 190 11% 8 159 9% 9 188 11% 10 185 11% 11 195 11% 12 181 11% 13 198 12% 14 211 12% 15 207 12% 16 203 12% 17 216 13% Source: National Football League, “Injuries,” available at [http://www.nfl.com/injuries]. a. These figures do not include any player who was listed on a team’s injury report, but for whom the entry in the “Injury” column was “Appendicitis,” “Coach’s Decision,” “Migraine,” “Personal,” “Personal Decision,” “Personal Reason,” “Team decision,” or “Illness.” b. Percentages have been rounded. Aside from weeks one and eight, at least 10% of NFL players are identified each week as being injured. The relatively small variation in the percentage of players identified as being injured each week throughout a 17-game season — 10% to13% — suggests, despite questions about the accuracy of the data, that a fairly consistent number of players are injured throughout the season. A journalist for the Pittsburgh Tribune-Review conducted an analysis of four years of data culled from the NFL’s weekly injury reports, interviewed 200 current and former players, coaches, and managers about injuries, and reviewed medical literature. A summary of his findings is as follows: CRS-8 In the 2000 through the 2003 seasons, NFL players racked up 6,558 injuries. More than half the athletes are hurt annually, with the number spiking at 68% in 2003-04, according to the NFL’s weekly injury reports. Defenders are injured more than their foes on the offense. A defensive back alone is 30 percent more likely to get hurt than a quarterback, even though a passer touches the ball on every possession. Two out of three cornerbacks and safeties suffer injuries in the NFL annually, and half of those will suffer a second, unrelated injury before the Super Bowl. Quarterbacks, tight ends, wide receivers, safeties and cornerbacks routinely suffer high rates of brain concussions and spine injuries that could trigger paralysis, dementia, depression and other ailments later in life. During typical four-year careers, one of every 10 NFL receivers experiences a concussion. On average, seven pro football players a week face potentially life-altering head, spine or neck trauma.25 Additionally, the news article noted that, during the four-year period studied, 1,205 players had knee injuries; 652 sustained head, spine, or neck trauma; 683 injured their hamstring and groin muscles; and 928 broke or sprained their ankles.26 Reportedly, the “2003 NFL injury rate was nearly eight times higher than that of any other commercial sports league, according to the U.S. Department of Labor — and that includes the National Hockey League, the National Basketball Association, and professional auto racing.”27 Another newspaper, the Los Angeles Times, also used the NFL’s weekly injury reports to compile data for several seasons, 1997-1999. In 1997, 335 players were sidelined for 937 games; in 1998, 398 players sat out 1,340 games; and, in 1999, 364 players did not play in 1,061 games.28 Table 3 shows the types of injuries sustained by NFL players for these three years. The data in this table are not comparable to the data provided in Table 2. A key difference between the two datasets is that the Los Angeles Times researcher who compiled the data found in Table 3 tracked individual players.29 Nevertheless, some of the same caveats that apply to Table 2 also might apply to Table 3. That is, the data in Table 3 may not provide an accurate count of the number of injuries sustained by NFL players for the following reasons: (1) only one type of injury or injury location was listed on the report, but some players listed may have had more than one injury; (2) a player may not have reported his injury or 25 Prine, “Bloody Sundays.” 26 Ibid. 27 Ibid. 28 Gutierrez, “NFL Injuries; Pain Game.” 29 Specifically, he “tracked every player who suffered an injury during the 1997, ‘98, and ‘99 seasons. Those players who were sidelined for a game or more because of injury were logged, as were the number of games they were sidelined and the types of injuries. Players who were injured in the previous season or in the exhibition season and missed games the next season ... were not counted.” (Houston Mitchell, “NFL Injuries; Injury Report; Methodology,” Los Angeles Times, J an. 25, 2000, available at [http://www.lexisnexis.com/].) CRS-9 injuries to his team’s medical staff and hence his name did not appear on the report; (3) a player may have reported his injury or injuries to the medical’s staff, but the type or severity of the injury or injuries did not preclude him from playing. Table 3. NFL Players’ Injuries by Type of Injury, 1997-1999 Type of Injury or Illness 1997a 1998a 1999a Abdomen 2 1% 6 1% 1 <1% Abrasions 0 0 1 <1% Achilles tendon 3 1% 3 1% 5 1% Ankle 50 14% 54 13% 52 14% Arm 5 1% 5 1% 4 1% Back 12 3% 23 5% 9 2% Biceps 0 4 1% 1 <1% Blood clot 0 0 1 <1% Buttocks 1 <1% 0 0 Calf 4 1% 10 2% 7 2% Chest 0 5 1% 2 1% Concussion 5 1% 5 1% 11 3% Elbow 7 2% 4 1% 5 1% Ear 1 <1% 0 0 Eye 3 1% 2 <1% 0 0 0 1 <1% Face laceration CRS-10 Type of Injury or Illness 1997a 1998a 1999a Finger 1 <1% 4 1% 1 <1% Foot 8 2% 23 5% 19 5% Groin 12 3% 14 3% 10 3% Hamstring 29 8% 35 8% 30 8% Hand 12 3% 9 2% 2 1% Head 3 1% 2 <1% 1 <1% Heel 1 <1% 0 0 Hernia 1 <1% 0 1 <1% Hip 6 2% 2 <1% 4 1% Jaw 2 1% 2 <1% 1 <1% Kidney 0 1 <1% 0 Knee 104 30% 131 31% 122 33% Leg 14 4% 7 2% 7 2% Liver 0 0 1 <1% Neck 11 3% 13 3% 14 4% Nose 1 <1% 0 0 Pelvis 1 <1% 0 0 Quadriceps 3 1% 2 <1% 7 2% CRS-11 Type of Injury or Illness 1997a 1998a 1999a Ribs 6 2% 4 1% 4 1% Shin 0 1 <1% 0 Shoulder 22 6% 35 8% 31 8% Thigh 3 1% 1 <1% 0 Throat 0 0 1 <1% Thumb 5 1% 4 1% 4 1% Toe 5 1% 3 1% 6 2% Triceps 1 <1% 2 <1% 1 <1% Wrist 3 1% 3 1% 0 Total 347 419 367 Source: Houston Mitchell, “NFL Injuries; Injury Report; Methodology,” Los Angeles Times, Jan. 25, 2000, available at [http://www.lexisnexis.com/]. a. Percentages have been rounded. According to Table 3, players sustained 43 different types of injuries. Four types of injuries accounted for 50% of the injuries in each year: knee, ankle, hamstring, and shoulder. The breakdown for each of these injuries, by year, is as follows: ! ! ! ! Knee: 30%, 31%, and 33% Ankle: 14%, 13%, and 14% Hamstring: 8% each year Shoulder: 6%, 8%, and 8% Given the focus on mild traumatic brain injury (MTBI, or concussions) in 2007, and the related anecdotal evidence on the frequency of concussions, it is notable that only 21 concussions were recorded for this three-year period (1997-1999). Concussions accounted for 1% of injuries in 1997 and in 1998, and 3% in 1999. For some players, the injuries they sustain playing in the NFL might lead to disabilities later in life. David Meggyesy, a former player and the director of NFLPA’s San Francisco office, reportedly referred to post-NFL injuries as “‘the CRS-12 elephant in the room that no one wants to say is in the room.... Everybody walks away with an injury.... You just don’t see that being done to the human body and not think there are going to be consequences later in life.’”30 Echoing Meggyesy’s comments, a former president of the NFLPA, Trace Armstrong, offered his observations of other former players: “You go to our retired players’ conventions ... and some of these guys don’t look so good. Young men, onetime great athletes, but they don’t move around so well.” Health Problems Although accurate, complete, comprehensive, and detailed data about former and active players are necessary to construct a comprehensive picture of their health, the following information is useful for illustrating some of the health problems football players might experience, whether as active players or as retirees. An obvious feature of most football players is their size. From 1985 through 2005, the average weight of a player in the NFL grew by 10% to an average of 248 pounds. At the heaviest position, offensive tackle, the average weight of players has increased from 281 pounds in the mid-1980s to 318 pounds in 2005.31 As of 2005, 552 players weighed 300 pounds or more, which is 33% of all active players, and 82 other players weighed between 295 and 299 pounds.32 Not only are football players large, but some of them also may be classified as obese. Joyce B. Harp and Lindsay Hecht calculated the body mass index (BMI) of NFL players active during the 2003-2004 season and reported these findings:33 ! ! ! 97% of the players had a BMI of 25 or greater. 56% had a BMI of 30 or greater. This was 32 percentage points higher than the percentage of 20- to 39-year-old men who had comparable BMIs in the 1999-2002 National Health and Nutrition Examination Survey (NHANES).34 26% of the players had a BMI of 35 or greater. 30 David Steele, “Adding Insult to Injury,” San Francisco Chronicle, Sept. 1, 2002, available at [http://sfgate.com]. 31 Thomas Hargrove, “Heavy NFL Players Twice as Likely to Die Before 50,” Espn.com, Jan. 31, 2006, available at [http://sports.espn.go.com/nfl/news/story?id=2313476]. 32 Mark Maske and Leonard Shapiro, “NFL Is Soul Searching After Herrion’s Death,” Washington Post, Aug. 25, 2005, p. E8. 33 For this study, “body mass index (BMI) was calculated for each of the players as weight in kilograms divided by height in meters squared, as was mean BMI for each team and position across all 32 teams and a frequency distribution of BMI for all players.” (Joyce B. Harp and Lindsay Hecht, “Obesity in the National Football League,” Journal of the American Medical Association, vol. 293, no. 9, Mar. 2, 2005, p. 1061.) 34 Information about the National Health and Nutrition Examination Survey is available at [http://www.cdc.gov/nchs/nhanes.htm]. CRS-13 ! ! ! 3% of the players had a BMI of 40 or greater. This percentage was similar to the percentage (3.7%) of 20- to 39-year-old men who had comparable BMIs in the 1999-2002 NHANES. Cornerbacks and defensive backs had the lowest mean BMI (26.8). Guards had the highest mean BMI (38.2).35 In this study, “body mass index was classified according to the National Institutes of Health guideline: normal weight (BMI 18.5-24.9), overweight (25-29.9), obese class 1 (30-34.9), obese class 2 (35-39.9), and obese class 3 ($40).”36 These data show that slightly more than half of the players were obese, with 26% having a BMI that “qualifie[s] as class 2 obesity.”37 The authors concluded their article with the following comment: Although measurements of body composition are needed to determine the source of the increased weight, it is unlikely that the high BMI in this group, particularly in the class 2 obesity range, is due to a healthy increase in muscle mass alone. The high number of large players was not unexpected given the pressures of professional athletes to increase their mass. However, it may not be without health consequences. A recent study described increased sleep-disordered breathing in professional football players, particularly those with a high BMI; linemen, who had the highest BMIs, also had higher blood pressures than did other players. The high prevalence of obesity in this group warrants further investigation to determine the short- and long-term health consequences of excessive weight in professional as well as amateur athletes.38 Dr. Elliott Pellman, former medical advisor/liaison to the NFL Commissioner, reportedly critiqued the Harp and Hecht article by saying: “‘[The BMI] is okay if you’re an actuary for life insurance.... But medically, we don’t define obesity that way. It’s not designed for people that large. The study the [NFL] commissioner ordered will do a lot more than take heights and weights off the Internet. The data must be gathered in a scientific way.’”39 35 Harp and Hecht, “Obesity in the National Football League,” pp. 1061-1062. 36 Ibid., p. 1061. 37 Ibid., p. 1062. 38 Ibid., p. 1062. 39 Maske and Shapiro, “NFL Is Soul Searching After Herrion’s Death,” p. E8. It is unclear whether the subject of obesity will be part of the NFL’s study on cardiovascular health, or it will be the subject of a separate study. See Appendix B for a list of planned or ongoing studies. Elliot Pellman was medical advisor/liaison to the NFL Commissioner for the period 2001-2006. (Elliot J. Pellman, “Curriculum Vitae,” provided by the House Committee on the Judiciary to the author on Nov. 6, 2007, p. 3.) Dr. Pellman served as the Chairman of the NFL Committee on Mild Traumatic Brain Injury (MTBI) from 1994 through 2007. His residencies and fellowship were in the fields of internal medicine and rheumatology. He continues to serve on the MTBI Committee, and he also serves on the Alliance for NFL Retired Football Players (member, 2007-present), the NFL’s Foot and Ankle Committee (advisor, 2005-present) and Cardiovascular Health Committee (advisor, 2004-present), the NFL-NFLPA Joint Committee on Player Safety (member, 2001-present), the NFL’s Injury and Safety Panel (advisor, 1995-present). Previously, he served as a member of the National (continued...) CRS-14 Reportedly, some NFL linemen have a provision in their contracts saying they agree to maintain their size.40 In Article XXIV, Section 7(c) of the CBA, which addresses financial incentives in players’ contracts, examples of incentives that are considered “within the sole control of the player” include “weight bonuses.”41 “Weight bonuses” is open to interpretation. For example, a player may be required to not exceed a certain weight or not to fall below a certain weight. Reportedly, Gene Upshaw, executive director of the NFLPA, said, in 2002, that the players association and the league had been discussing “how to deal with weight-loss demands by coaches. Is science involved? What factors do height and weight play? How long does it take the player to lose it?”42 It is unclear, though, whether this reference to weight loss is related to the possibility of a weight contract clause. Obesity itself, plus simply being overweight, can lead to other health problems, both indirectly and directly. Players who have retired from the NFL may have difficulty decreasing their weight and staying in shape, particularly if they suffer from other health problems that preclude or limit their physical activity.43 Kevin Guskiewicz, research director of the Center for the Study of Retired Athletes (CSRA), University of North Carolina at Chapel Hill, as quoted in the New York Times, adds pain to the equation and describes a possible chain of events for former players: “What happens is that the retired athlete can’t exercise because of the injuries he’s sustained and the pain he is in, and that leads to higher weight, depression, bad eating habits, high blood pressure and so on.”44 Sleep apnea and cardiovascular disease (CVD) are examples of two health problems associated with excess weight. A 2003 study by SleepTech Consulting Group found that 34% of offensive linemen suffered from sleep apnea.45 As reported by the New York Times, an associate team physician with the New York Giants, Dr. Allan Levy, describes what some NFL players might experience: The problem with sleep apnea is in the neck. A 17 ½-inch neck is usually where the problem begins. When they sleep, the muscles relax in the body. Now the 39 (...continued) Football League Physicians Society’s executive committee, from 1994 through 2003. (Ibid., pp. 1-5.) 40 Prine, “Extra Pounds Cause Trouble Later in Life.” 41 National Football League and NFL Players Association, NFL Collective Bargaining Agreement, 2006-2012, p. 109. 42 Thomas George, “Care by Team Doctors Raises Conflict Issue,” July 28, 2002, available at [http://query.nytimes.com/gst/fullpage.html?res= 990DEFDE173BF93BA15754C0A9649C8B63]. 43 Ibid. 44 Harvey Araton, “Stealth Killer Puts Doctor on Mission with N.F.L.,” New York Times, May 8, 2007, available at [http://query.nytimes.com/gst/fullpage.html?res= 9C02EED71631F93BA35756C0A9619C8B63&n=Top/News/Sports/Columns/Harvey% 20Araton]. Information about the Center for the Study of Retired Athletes may be found at [http://www.csra.unc.edu/index.htm]. 45 Prine, “Extra Pounds Cause Trouble Later in Life.” CRS-15 weight of their neck clasps down on their airway. They stop breathing. They momentarily wake up, then the cycle starts over again, and they never get into deep sleep. They develop heart disease and hypertension. Sleep apnea is a killer. One of the kids that played for us, we did a sleep study on [him], [he] had 440 awakenings during the night.46 Dr. Arthur Roberts, a cardiac surgeon who played in the NFL for three years, summarized the cardiovascular risk for professional football players. His summary, which was included in a Washington Post news article, follows: The real problem is what’s happening inside these men to their cardiovascular risk factors. The combination of large body size is associated with increased risk factors for diabetes and hypertension, which lead to so many other problems. Doctors have learned over the last 30 years that so many bad outcomes are related to cardiovascular problems that might have been avoided .... Cardiac arrest in the locker room is tragic but, thank God, a rare event .... But many of the risk factors that are in these players’ bodies are not apparent now but will be apparent later in life. We have to shift the pendulum and evaluate and educate the younger players, make it a total process. With retired players we’re finding high cholesterol and high blood pressure. We already know sleep apnea is associated with heart arrhythmia and hypertension. You have a lot of risk factors building in players. We have to make them aware and start educating them on how to take care of themselves to avoid problems later on. We have the technology to do it. We have a support system of doctors and hospitals involved in this study willing to do it. It’s now a matter of getting players to buy into it.47 Roberts was referring to a study of past and present players involving, among other things, the consequences of excess weight for cardiovascular health.48 In contrast, a study designed to assess whether there is a link between playing professional football and reduced risk later in life for CVD, osteoporosis, and higher muscle mass reached an encouraging conclusion: In this small [16 former NFL players] sample of older men, former successful professional athletes who remained physically active in middle age have a favorable body composition and reduced risk factors for CVD and osteoporosis compared with health age-and BMI-matched older men.49 The findings of this study do not necessarily contradict Kevin Guskiewicz’s comment above. This study included former players “who remained physically active in 46 Clifton Brown, “Ex-Players Dealing With Not-So-Glamorous Health Issues,” New York Times, Feb. 1, 2007, available at [http://query.nytimes.com/gst/fullpage.html?res= 9D0CEFDB153FF932A35751C0A9619C8B63&n=Top/Reference/Times%20Topics/ People/B/Brown,%20Clifton]. 47 Maske and Shapiro, “NFL Is Soul Searching After Herrion’s Death,” p. E8. 48 Ibid. 49 Nicole A. Lynch, Alice S. Ryan, Joyce Evans, Leslie I. Katzel, and Andrew P. Goldberg, “Older Elite Football Players Have Reduced Cardiac and Osteoporosis Risk Factors,” Medicine & Science in Sports & Exercise, 2007, p. 1124. CRS-16 middle age,” while Guskiewicz was referring to retired players who are unable to exercise because of injuries sustained during their NFL careers. Responding to a request from the NFLPA, the National Institute for Occupational and Safety and Health (NIOSH) conducted a mortality study in the early 1990s of the rate and causes of death of NFL players.50 The study found the following: ! Former offensive and defensive linemen “had a 50% greater risk of cardiovascular disease than the general population.”51 ! Linemen “had a 3.7 times greater risk of cardiovascular disease” than players in other positions.52 Possibly lending credence to questions about the size of players, the authors noted that “[i]t is not possible from this analysis to determine specifically what it is about the linemen, besides BMI, that contributes to this increased risk.”53 As described above, players sustain hits to the head, which may or may not result in a mild traumatic brain injury (MTBI) or concussion. Reportedly, league data show that approximately 100 players a year sustain concussions.54 (For more information on MTBI, see below, in the “Discussion of Selected Issues” section.) A study that focused on the long-term effect of concussions, however, also reported information about other health problems experienced by former players. The researchers found, by questioning 2,488 former NFL players, that 22% had knee surgery and 10% had back or disc surgery after their careers ended.55 In response, the NFL’s medical advisor/liaison reportedly said that there is little credible research on whether playing football leads to serious medical problems later in life.56 50 A January 2006 news article reported that Dr. Sherry Baron, co-author of the 1994 study, was planning to repeat her study of mortality rates within the NFL. (Thomas Hargrove, “Compared to Baseball, Football Players Die Younger,” Espn.com, Jan. 31, 2006, available at [http://sports.espn.go.com/nfl/news/story?id=2313520].) The status of the planned study is not known. 51 Letter from Sherry Baron, M.D., M.P.H., and Robert Rinsky, U.S. Department of Health and Human Services, National Institute for Occupational Safety and Health, to Frank Woschitz, National Football League Players Association, Jan. 10, 1994, p. 4. This letter is popularly known as the “NFL mortality study.” 52 Ibid., p. 4. 53 Ibid., p. 4. 54 Peter Keating, “Doctor Yes,” ESPN.com, Oct. 28, [http://sports.espn.go.com/espn/print?id=2636795 &type=story]. 55 2006, available at Ellen E. Schultz, “A Hobbled Star Battles the NFL,” Wall Street Journal, Dec. 3, 2005, p. A2. 56 Ibid., pp. A2-A3. CRS-17 A study of depression and pain experienced by former NFL players also surveyed them about the most common problems they experience in retirement. The results, “in descending order of frequency as quite or very common” were: “difficulty with pain (48%), loss of fitness and lack of exercise (29%), weight gain (28%), trouble sleeping (28%), difficulty with aging (27%), and trouble with transition to life after professional football (27%).”57 Regarding the thrust of the study, the study’s authors wrote: Although pain and depression are commonly comorbid in the general population ..., the frequency with which retired professional football players report difficulty with pain seems to put them at additional risk of both developing depression and experiencing associated difficulties with retirement. The high level of psychosocial dysfunction and significant barriers to receiving help put a small but important subgroup of all retired NFL players at significant risk of adverse life events and disability, almost certainly including an increased risk of suicide.... Retired professional football players experience depressive symptoms at a rate that is similar to that found in the general population, presumably with a corresponding rate of clinical depression. They bear an additional burden of substantial chronic pain. Depressive symptoms and pain interact to result in a strong correlation with self-report perceptions of the risk of sleeping problems, difficulty with aging, loss of fitness and lack of exercise, financial problems, and concerns about their use of prescription and recreational drugs and alcohol.58 What, if any, relationship exists between playing professional football and mortality is unclear. The 1994 NIOSH study mentioned above found that professional football players had “a 46% lower overall mortality rate than the general United States male population with a similar age and race distribution.”59 A review of data on the mortality of those who played football, and those who played baseball, a sport with less physical contact. Deceased players from both sports born before 1955”were about equally likely to suffer an early death.”60 However, differences between these two groups of athletes did appear for players born after 1955. ! At least 130 of the 8,961 football players and 31 of the 4,382 baseball players born after 1955 are known to have died. That is, 1 in every 69 football players and 1 in every 154 baseball players born after 1955 have died. ! The most common cause of death for baseball players was accidents; only one-third died of medical causes. Over half (52%) of the deceased football players “succumbed to conditions such as coronary 57 Thomas L. Schwenk, Daniel W. Gorenflo, Richard R. Dopp, and Eric Hipple, “Depression and Pain in Retired Professional Football Players,” Medicine & Science in Sports and Exercise, 2007, pp. 600-601. 58 Ibid., pp. 603-604. 59 Letter from Baron and Rinsky to Woschitz, p. 4. 60 Thomas Hargrove, “Compared to Baseball, Football Players Die Younger.” CRS-18 disease, stroke and cancer — diseases known to be more common among obese people.”61 ! “The deceased baseball players averaged 192 pounds during their athletic careers while the dead football players averaged 238 pounds. Football players who died of medical causes averaged 248 pounds.”62 Complete, detailed, comprehensive, and accurate data are needed to construct a profile of the health of active players and former players. Furthermore, this type of initiative potentially could facilitate efforts to determine what links exist, if any, between injuries sustained as an active player and chronic health problems and disabilities (as broadly construed) experienced as a retired player. NFL and NFLPA Benefit Programs and Plans History of Benefits Both the league and the players association are involved in the funding and provision of benefits to former players as well as active players. Most of the benefits for former players are administered by joint boards “to which the NFLPA and the NFL each appoint three voting members. The day-to-day administration of these jointly-trusteed benefits occurs at the ‘Plan Office’ in Baltimore ....” That is, neither the NFLPA nor the NFL administers certain benefits, such as the benefits included in the retirement plan, although the NFL is the sole administrator for severance pay and post-career health insurance.63 Although the name and composition of the league has changed over the years, the league was formed in 1920, and adopted its current name in 1922.64 The NFL Players Association was founded a number of years later, in 1956. The following history of selected events shows the evolution of benefits for NFL players. Events that are not directly related to the establishment or enhancement of benefits are included to provide context or background information. Such events may include strikes, lockouts, and lawsuits, which are included for the period 19871993, when several events and decisions culminated in significant changes in benefits. However, since this is not a history of labor relations between the league and the players association, the chronology does not necessarily include all of the labor-management issues or milestones. 61 Ibid. 62 Ibid. 63 Ibid., p. 29. 64 The NFL as it exists today was created through a merger in 1966 with another league, the American Football League, which was formed in 1959. CRS-19 ! 1958. Team owners created “a benefit plan that included hospitalization, [and] medical and life insurance with a plan for retirement benefits at age 65.”65 ! 1960s. “Players pushed through pension coverage [for] a group of 110 players who were in the league in 1959, when benefits were introduced. Life insurance and health coverage benefits were improved and, for the first time, two player reps [representatives] were designated to sit on the Retirement Board.”66 ! 1962. The NFLPA obtained the first pension agreement, known as the Bert Bell NFL Player Retirement Plan. The plan does not include players who left the game before 1959 (known as the “pre59ers”).67 ! 1966. The Commissioner of the NFL announced that the NFL and American Football League (AFL) will merge into one league. ! 1968. The NFLPA, which represented players on only 16 of the 26 teams (the AFL Players Association represented players on the remaining 10 teams), “proposed new pension demands ....” A lockout is followed by a brief strike, and eventually the parties agreed to what was the first CBA, which was effective from July 15, 1968, through February 1, 1970.68 Negotiations resulted in “a minimum salary of $12,000, better pay for exhibitions, and a doubling of the annual pension-fund contribution to $3 million.”69 The NFLPA demands included a retirement age of 45; but, the retirement age in the CBA was set at age 65.70 ! 1970. The AFL Players Association and the NFL Players Association merged and retained the latter’s name. The NFLPA was 65 NFL Players Association, “About Us: NFLPA History,” n.d., available at [http://www.nflpa.org/AboutUs/NFLPA_History.aspx] as of Oct. 2, 2007, on file with the author. 66 Ibid. 67 NFL Players Association, “History of Retirement and T&P Benefits for NFL Players,” n.d., available at [http://nflpa.org/pdfs/NewsAndEvents/ History_of_the_NFLPA%E2%80%99s_Retired_ Player_Benefits.pdf], downloaded Sept. 2007, on file with the author. 68 NFL Players Association, “About Us: NFLPA History”; The Business of Football 2001 (Carmel, CA: Paul Kagan Associates, Inc., 2001), p. 392. 69 Stephen Fox, Big Leagues, Professional Baseball, Football, and Basketball in National Memory (Lincoln, NE: University of Nebraska Press, 1994), p. 425. 70 The Business of Football 2001, p. 393. CRS-20 certified as a union.71 The American Football League (AFL) and the NFL merged and retained the latter’s name. “The Players Negotiating Committee and the NFL Players Association announced a four-year agreement guaranteeing approximately $4,535,000 annually to player pension and insurance benefits.... The owners also agreed to contribute $250,000 annually to improve or implement items such as disability payments, widows’ benefits, maternity benefits, and dental benefits.”72 Players also were given the “right to meaningful representation on the Retirement Board, and the right to impartial arbitration of injury grievances.”73 Total and permanent (T&P) disability benefits and line-of-duty (LOD) disability benefits were established.74 The pension plan was revised and set up in its present structure. Monthly pension is based on the number of years an individual plays football, not on the amount of his salary.75 71 ! 1973. A nonprofit organization, NFL Charities, was created “to support education and charitable activities and to supply economic support to persons formerly associated with professional football who were no longer able to support themselves.”76 ! 1974-1976. NFL and NFLPA played three seasons without a CBA.77 ! 1977. The NFL Management Council and the NFLPA ratified a CBA which continued “the pension plan — including years 1974, 1975, and 1976 — with contributions totaling more than $55 million.... The agreement ... reduced pension vesting to four years ... [and] improved insurance, medical, and dental benefits.”78 Specifically, Group Insurance was established.79 Players were permitted to get a lump sum “early payment benefit” from their pension; the lump sum equaled 25% of their pension.80 NFL Players Association, “About Us: NFLPA History.” 72 National Football League, “History, 1961-1970,” n.d., available at [http://www.nfl.com/ history/chronology/1961-1970]. 73 NFL Players Association, “About Us: NFLPA History.” 74 Letter from Upshaw to Reps. Conyers, Smith, Sanchez, and Cannon, p. 4. 75 NFL Players Association, “History of Retirement and T&P Benefits for NFL Players.” 76 National Football League, “History, 1971-1980,” n.d., available at [http://www.nfl.com/ history/chronology/1971-1980]. 77 The Business of Football 2001, p. 394. 78 National Football League, “History, 1971-1980.” 79 Letter from Upshaw to Reps. Conyers, Smith, Sanchez, and Cannon, p. 4. 80 NFL Players Association, “History of Retirement and T&P Benefits for NFL Players.” CRS-21 ! 1982. The strike-shortened season resumed after the CBA was ratified on November 21-22. The CBA included, among other things, increases in players’ medical, insurance, and retirement benefits; and a severance pay system.81 Players also gained rights related to their medical care: the right to a second opinion, the “right to select a surgeon for injury-related operations, and the right to inspect their club medical records.”82 ! 1987. The 1982 CBA expired. The 1987 season included a strike, the use of replacement players, the NFLPA filing an antitrust lawsuit against the NFL and then filing charges with the National Labor Relations Board (NLRB), alleging unfair labor practices.83 A “special payment program was adopted to benefit nearly 1,000 former NFL players who participated in the League before the current Bert Bell NFL Pension Plan was created and made retroactive to the 1959 season. Players covered by the new program spent at least five years in the League and played all of part of their career prior to 1959. Each vested player would receive $60 per month for each year of service in the League for life.”84 Players continued to play through the 1993 season without a new CBA. ! 1987 and 1988. The owners agreed to allow benefit credits to accrue at the then-rate of $150 per Credited Season.85 ! 1989. A court ruling in the NFLPA’s antitrust lawsuit suggested that “players had to choose between being a union and using their right to strike under labor laws, or relinquishing their union rights and [pursuing] their antitrust rights as individuals in court.” Players ratified a decision for the NFLPA to decertify as a union, which freed the players to pursue their antitrust rights.86 Team owners refused to allow continued accruals of benefit credits. Instead, owners created their own plan, called the “Pete Rozelle NFL Player Retirement Plan.” The Rozelle plan was similar to the Bell plan, “except that it [Rozelle plan] was run totally by the owners and had 81 National Football League, “History, 1981-1990,” n.d., available at [http://www.nfl.com/ history/chronology/1981-1990]; Peter King, “The Surreal Strike of 1987,” Sports Illustrated, Oct. 15, 2007, p. 22; NFL Players Association, “About Us: NFLPA History”; Stephen Fox, Big Leagues, Professional Baseball, Football, and Basketball in National Memory (Lincoln, NE: University of Nebraska Press, 1994), p. 426; Letter from Upshaw to Reps. Conyers, Smith, Sanchez, and Cannon, p. 4. 82 NFL Players Association, “About Us: NFLPA History.” 83 Ibid.; The Business of Football 2001, p. 395. 84 National Football League, “History, 1981-1990.” 85 NFL Players Association, “History of Retirement and T&P Benefits for NFL Players,” p. 4. 86 NFL Players Association, “About Us: NFLPA History.” CRS-22 no player trustees.”87 By comparison, the union had the right to appoint three of the Bert Bell Plan’s six voting trustees. The owners refused “to make further contributions [to the Bell Plan], and the trustees appointed by the union ... sued the trustees appointed by the owners.”88 87 ! 1990. The NFLPA was re-formed as a professional association. Its goal was to “pursue litigation on behalf of individual players....”89 The change in status of the NFLPA “caused a rapid domino effect in court cases.” For example, the NLRB awarded back pay to 1,400 players prevented from playing for one week after they ended their strike in 1987; a case filed in 1990 “resulted in a jury awarding damages to players; and the 1989 Brown v. NFL case awarded $30 million to practice squad players....”90 ! 1992. “The NFL agreed to provide a minimum of $2.5 million in financial support to the NFL Alumni Association and assistance to NFL Alumni-related programs. The agreement included contributions from NFL Charities to the Pre-59ers and Dire Need Programs for former players.”91 ! 1993. The NFL and the players association signed a seven-year CBA, “which guarantee[d] more than $1 billion in pension, health, and post-career benefits for current and retired players....”92 Specifically, the agreement provided for free agency; gave players a guaranteed percentage of the gross revenues; retroactively increased pre-59ers’ pensions by 30% and all other players’ pensions by 40%; added pre-59ers to the Bert Bell Pension Plan (which added 906 players to the plan); decreased the vesting requirement to three credited seasons; and established the Retiree Medical benefit, Second Career Savings Plan, and Total and Permanent (T&P) Disability benefits.93 Additionally, “WWII years were included for NFL Players Association, “History of Retirement and T&P Benefits for NFL Players,” p. 4. 88 Ibid. 89 NFL Players Association, “About Us: NFLPA History.” 90 The Business of Football 2001, p. 396. 91 National Football League, “History, 1991-2000,” available at [http://www.nfl.com/ history/chronology/1991-2000]. 92 93 Ibid. NFL Players Association, “About Us: NFLPA History”; NFL Players Association, “Recent Pensions & Disability Improvements Timeline,” n.d., available at [http://www.nflpa.org/pdfs/NewsAndEvents/Timeline_of_NFLPA_Pension_and_ Disability_Improvements.pdf], downloaded Sept. 2007, on file with the author; NFL Players Association, “History of Retirement and T&P Benefits for NFL Players,” p. 5; and Letter (continued...) CRS-23 pension eligibility, increasing [the number of] credited seasons for 159 players,” and “Korean War and Vietnam years were included for pension credits, adding 182 players.”94 A single plan counsel (Groom Law Group) and a single plan actuary (Aon Corporation) were selected. The CBA “based future contributions strictly on negotiated actuarial factors.”95 The Pete Rozelle Plan and its assets merged with the Bert Bell Plan, and the NFLPA becomes a certified union again.96 ! 1998. The 1993 CBA was extended through at least 2003. The extension established an annuity plan; provided for salary guarantees for certain players; increased minimum salaries, increased the lowest benefit credit from $80 to $100; increased the T&P disability benefit; and changed the pension eligibility requirement from five to four credited seasons.97 ! 2002. The CBA was extended again. The extension allowed injured reserve seasons prior to 1970 to be counted toward pension eligibility and raised the lowest benefit credits from $100 to $200.98 ! 2006. The CB0A was extended and became effective until the last day of the 2012 league year. The extension raised the lowest benefit credit from $200 to $250 (for individuals who played during the period1920-1982); tripled widows’ and surviving children’s benefits; created the Plan 88 program; and increased the monthly pension amount by 10% for individuals who played from 19832006.99 ! 2007. The following benefits and programs were announced or established: Health Reimbursement Account Plan, Cardiovascular 93 (...continued) from Upshaw to Reps. Conyers, Smith, Sanchez, and Cannon, pp. 4-5. 94 NFL Players Association, “Recent Pensions & Disability Improvements Timeline.” 95 NFL Players Association, “History of Retirement and T&P Benefits for NFL Players,” p. 5. 96 NFL Players Association, “History of Retirement and T&P Benefits for NFL Players,” p. 5. 97 NFL Players Association, “About Us: NFLPA History”; NFL Players Association, “History of Retirement and T&P Benefits for NFL Players,” p. 6; Letter from Upshaw to Reps. Conyers, Smith, Sanchez, and Cannon, p. 5; and NFL Players Association, “Recent Pensions & Disability Improvements Timeline.” 98 Ibid.; NFL Players Association, “History of Retirement and T&P Benefits for NFL Players,” p. 6. 99 NFL Players Association, “Recent Pensions & Disability Improvements Timeline”; NFL Players Association, “History of Retirement and T&P Benefits for NFL Players,” p. 6. CRS-24 Health Program, NFL Player Joint Replacement Benefit Plan, and assisted living arrangements.100 ! 2008. The following changes and programs were announced or established: expanded health screening that focuses on cardiovascular health, obesity, and prostate cancer; discounted rates and special services at three national assisted living providers; and a prescription drug card that will allow former players to purchase prescription medications at a discount.101 Additionally, the NFL and NFLPA announced changes that have been, or will be, made to T&P and LOD disability benefits. These changes are noted in Table 4. How Benefits Are Funded Funds for benefits that are included in the CBA come from the portion of the league’s total revenues that is allocated to the players. A summary of the definition of “total revenues” (TR) is as follows: [T]he aggregate revenues received or to be received on an accrual basis ... by the NFL and all NFL Teams ... from all sources, whether known or unknown, derived from, relating to or arising out of the performance of players in NFL football games, with only the specific exceptions set forth below [in Article XXIV, Section 1(a)(ii) of the CBA].... Total Revenues shall include, without limitation: ... gate receipts ... the sale, license or other conveyance of the right to broadcast or exhibit NFL preseason, regular season and playoff games on radio and television ... revenues derived from concessions, parking, local advertising, signage, magazine advertising, local sponsorship agreements, stadium clubs, luxury box income ... Internet operations... and sales of programs and novelties....”102 Under the current CBA, the portion of total revenues that goes to players (that is, the “player costs percentage”103) each year is as follows: 100 Letter from Upshaw to Reps. Conyers, Smith, Sanchez, and Cannon, p. 5; National Football League, “NFL & NFL Players Association Create New Joint Replacement Benefit Plan,” news release, Dec. 10, 2007; and “14 Leading Medical Institutions Selected to Assist Retired Players Needing Joint Replacement Surgery,” news release, Dec. 10, 2007. Few details are available about some of these initiatives, which means that eligibility criteria, the application process (if any), and the extent of benefits are unknown. 101 National Football League and NFL Players Association, “NFL and NFL Players Association Expand Disability Benefits Program for Retired Players,” Feb. 29, 2008, available at [http://www.nflplayers.com/user/content.aspx?fmid=178&lmid=443&pid= 422&type=n], p. 3. Detailed information about these initiatives is provided later in this report. 102 National Football League and NFL Players Association, NFL Collective Bargaining Agreement, 2006-2012, pp. 82-83. 103 Player costs include “the total Salaries and Benefits attributable to a League Year for all NFL Teams under all of the rules set forth in Article XXIV (Guaranteed League-wide Salary, Salary Cap & Minimum Team Salary), but not including loans, loan guarantees, (continued...) CRS-25 ! ! ! ! ! ! 2006: 57% 2007: 57% 2008: 57.5% 2009: 57.5% 2010: 58% 2011: 58%104 The amount of money equivalent to the player costs percentage in a given year is allocated between active players’ salaries and benefits for both active players and retired players. The following description of how a team’s salary cap is determined shows the relationship between salaries and benefits: in 2008, the amount of a team’s salary cap will be “57.5% of Projected Total Revenues, less League-wide projected benefits, divided by the number of Teams playing in the NFL during such year....”105 The following definition of “benefits” lists the different benefits for active players and former players that are funded in the manner described above: Benefits “mean the aggregate for a League Year of all sums paid ... by the NFL and all NFL Teams for, to, or on behalf of present or former NFL players, but only for: (i) pensions funding, including the Bert Bell/Pete Rozelle NFL Player Retirement Plan ... and the Second Career Savings Plan ...; (ii) Group insurance programs, including life, medical, and dental coverage ... and the Second Career Savings Plan; (iii) Injury protection ...; (iv) Workers’ compensation, payroll, unemployment compensation, social security taxes, and contributions to the fund described in Article LIV, Section 4 below [Worker’s Compensation Offset Provisions]; (v) Pre-season per diem amounts ... and regular season meal allowances ...; (vi) Expenses for travel, board and lodging for a player participating in an off-season workout program ...; (vii) Payments or reimbursements made to players participating in a Club’s Rookie Orientation Program ...; (viii) Moving and travel expenses ...; (ix) Postseason pay ...; and salary paid to practice squad players ...; (x) Player medical costs ...; (xi) Severance pay ...; (xii) The Player Annuity Program ...; (xiii) The Minimum Salary Benefit ...; (xiv) The Performance Based Pool ...; (xv) The Tuition Assistance Plan ...; (xvi) The NFL Players Health Reimbursement Account ...; (xvii) The “88 Benefit” ...; (xviii) The NFL Player Benefits Committee....”106 The portion of the “League-wide projected benefits” needed “to fund the Retirement Plan is calculated actuarially, in accordance with federal law.”107 The 103 (...continued) unpaid grievances attributions, and unearned incentives.” (National Football League and NFL Players Association, NFL Collective Bargaining Agreement, 2006-2012, p. 7.) 104 NFL Players Association, “NFLPA Term Sheet - Basic Economic Terms,” Mar. 7, 2006, available at [http://www.nflpa.org/pdfs/CBA/2006_CBA_Extension_Term_Sheet.pdf], downloaded Sept. 2007, on file with the author. 105 National Football League and NFL Players Association, NFL Collective Bargaining Agreement, 2006-2012, p. 96. 106 Ibid., pp. 93-94. 107 Letter from Upshaw to Reps. Conyers, Smith, Sanchez, and Cannon, p. 29. CRS-26 same is also true for the Health Reimbursement Account Plan.108 (The retirement plan and the Health Reimbursement Account Plan are described below.) According to the NFL and the NFLPA, the actuarial assumptions, or factors, that are used are negotiated during the collective bargaining process and are “acceptable to the plan’s Enrolled Actuary.”109 The following excerpt from the CBA describes the process: For the 1993 Plan Year and continuing for each Plan Year110 thereafter that begins prior to the expiration of the Final League Year,111 a contribution will be made to the Retirement Plan on behalf of each NFL Club as actuarially determined to be necessary to fund the benefits provided in this Article [of the CBA], based on the actuarial assumptions and methods contained in Appendix J [of the CBA]. No provision of this Agreement will eliminate or reduce the obligation to provide the benefits described in this Article, or eliminate or reduce the obligations of the NFL Clubs to fund retirement benefits. Contributions will be used exclusively to provide retirement benefits and to pay expenses.112 Similar language is found in the Bert Bell/Pete Rozelle NFL Player Retirement Plan: For each Plan Year that begins prior to the expiration of the Final League Year, a contribution to the Trust [the trust agreement for the Retirement Plan] will be made by the Employers, as actuarially determined to be necessary to fund the benefits provided in this Plan based on the actuarial assumptions and methods contained in Appendix A [of the Retirement Plan].113 Funding for benefits other than the retirement plan and the Health Reimbursement Account apparently is not calculated using actuarial methods and assumptions. The NFLPA has stated that “[t]he contribution necessary to fund other benefit plans is more simply calculated as the total of the benefits provided plus all costs of administration. For the new 88 Plan, the consultants estimated an initial 108 Ibid. 109 Letter from Goodell to Reps. Conyers and Smith, p. 10; NFL Players Association, “History of Retirement and T&P Benefits for NFL Players,” p. 5. In 1993, a single plan counsel, Groom Law Group, and a single plan actuary, Aon Corporation, were selected for the retirement plan. (NFL Players Association, “History of Retirement and T&P Benefits for NFL Players,” p. 5.) 110 “‘Plan Year’ means a 12-month period from April 1 to March 31. A Plan Year is identified by the calendar year in which it begins.” (Bert Bell/Pete Rozelle NFL Player Retirement Plan, Apr. 1, 2001, p. 6.) 111 Final League Year is “the League Year which is scheduled prior to its commencement to be the final League Year of the Collective Bargaining Agreement.” A “League Year” is “the period from February 20 of one year through and including February 19 of the following year, or such other one year period to which the NFLPA and the [NFL’s] Management Council may agree.” (Bert Bell/Pete Rozelle NFL Player Retirement Plan, pp. 4 and 6.) 112 National Football League and NFL Players Association, NFL Collective Bargaining Agreement: 2006-2012, p. 203. 113 Bert Bell/Pete Rozelle NFL Player Retirement Plan, p. 10. CRS-27 contribution of $1.88 million, all to benefit retired players.”114 The method or methods used to determine how much money to allocate to this and other benefits is unknown. Data provided by the NFL and the NFLPA show that possibly $919.6 million was spent on benefits for retired players in 2006 and 2007. However, the ways in which the data are presented by the two organizations leave room for interpretation. The NFLPA states that “active players gave up approximately” the following amounts (which total $181.6 million) during the period April 2006 through March 2007 for benefits for former players:115 ! ! ! ! $96.5 million for retirement benefits for retired players; $31 million for medical benefits for retired players ($18 million for health reimbursement accounts, $2 million for the 88 Plan, and $11 million for “five years post-retirement fully paid health care”); $20 million for disability benefits for retired players; and $34.1 million to fund workers’compensation coverage.116 In fall 2007, the NFLPA also noted that 38% of vested former players were receiving monthly benefits at that time.117 According to the NFL, “... clubs contributed approximately $388 million” in 2006 to fund the Supplemental Disability Plan, Second Career Savings Plan, Annuity Program, Group Insurance Plan, Health Reimbursement Account Plan, 88 Plan, Severance Plan, and Tuition Reimbursement (which is not included in this report).118 The NFL estimated that the costs of these benefits in 2007 would be $350 million. Although the NFLPA regularly describes the amount of funds provided for retirees’ benefits in terms of how the “[b]enefit costs reduce the revenue available for active players under the” CBA, it appears that this description refers to the process described above for the allocation of funds for benefits.119 Regarding the NFL’s statement that the teams contribute funds for benefits, it seems plausible that this statement, too, refers to the allocation process described above. The differences in the information provided by the NFL and NFLPA make it difficult to determine exactly how much money was spent for each benefit in 2006 114 Letter from Upshaw to Reps. Conyers, Smith, Sanchez, and Cannon, p. 29. 115 The NFLPA describes the amount of funds provided for retirees’ benefits in terms of how the “[b]enefit costs reduce the revenue available for active players under the” CBA. (NFL Players Association, “NFLPA White Paper” n.d., available at [http://www.nflpa.org/ whitepaper/], downloaded Sept. 2007, on file with the author, p. 4.) This description appears to refer to the allocation process described above in this report. 116 Letter from Upshaw to Reps. Conyers, Smith, Sanchez, and Cannon, pp. 29-30. 117 Ibid., p. 9. 118 The NFL will have contributed a total of $2.2 billion for these benefits during the period 1998-2007. (Letter from Goodell to Reps. Conyers and Smith, p. 12.) 119 NFL Players Association, “NFLPA White Paper,” p. 4. CRS-28 or 2007. The NFLPA provided information that covers both years, while the NFL provided an amount for each year. Additionally, the NFLPA provided a breakdown by type of benefit (that is, retirement benefits, medical benefits, and disability funds) and amount, while the NFL provided an aggregate amount for eight different benefits, each of which is listed by the name of the benefit. Benefits for Former Players Table 4 provides a summary of the benefits available to former players; eligibility requirements vary by benefit. This overview includes selected features for each type of benefit. For detailed information about a particular benefit, it is best to consult the appropriate document, such as the CBA. Workers’ compensation is included because, although states administer workers’ compensation programs, the NFLPA and the NFL provide funding for workers’ compensation for their players. The following is a list of the benefits included in Table 4. Shortened names are used in the table because this format makes it easier to identify the description or purpose of the benefit. Each benefit is identified by its complete name, as well as a shortened version. For example, the NFL Players Health Reimbursement Account appears as “Health Reimbursement Account” in the table. An asterisk identifies a benefit that is included in the CBA. ! 88 Benefit (or Plan)* ! Cardiovascular Health (CVH) Program ! Bert Bell/Pete Rozelle NFL Player Retirement Plan — Death Benefits (“death benefits”)* ! Bert Bell/Pete Rozelle NFL Player Retirement Plan — Line-of-Duty Disability (“line-of-duty disability”or “LOD disability”)* ! Bert Bell/Pete Rozelle NFL Player Retirement Plan — Retirement Benefits (“retirement benefits” or “pension”)* ! Bert Bell/Pete Rozelle NFL Player Retirement Plan — Total and Permanent Disability Benefits (“total and permanent disability benefits” or “T&P benefits”)* NFL Player Annuity Program (“annuity program”)* ! ! NFL Player Joint Replacement Benefit Plan (“joint replacement benefit plan”) ! NFL Player Second Career Savings Plan (“second career savings plan”)* ! NFL Player Supplemental Disability Plan (“supplemental disability plan” or “supplemental disability benefits”)* CRS-29 ! NFL Players Health Reimbursement reimbursement account”)* Account (“health ! Retiree Medical* (This benefit is part of Group Insurance, which is how the benefit is listed in the CBA. The remainder of the Group Insurance benefit is available to only active players.) ! Severance Pay* ! Workers’ Compensation CRS-30 Table 4. Selected NFL-NFLPA Benefits as of October 2007 Name of Benefit or Program and Year Established Players from These Years May Participate Summary of Eligibility Criteriaa Selected Featuresb,c 88 Pland,e February 1, 2007 All years Vested player who is suffering from dementia. — Plan will reimburse, or pay for, certain costs related to dementia. — A maximum of $88,000 may be paid annually for expenses for care provided by a third party (for example, institutional custodial care or home custodial care provided by an unrelated third party). The maximum amount of this benefit is $50,000 annually for care that is not provided by a third party (for example, a relative provides care at home). Annuity Programd April 1, 1998 1998-present Minimum of four credited seasons. — This is a deferred compensation program. — An allocation of $65,000 will be made for each eligible player who earns a credited season in an annuity year and who has a total of four or more credited seasons as of the end of such annuity year. Cardiovascular Health (CVH) Program July 25, 2007 All years Apparently, this program is open to all players. — Provides cardiovascular screening and education. Death Benefitsd September 19, 1962 All years Vested inactive or active player. — Provides financial assistance to widow and/or surviving minor children of a former or active player. — Monthly benefit equal to $3,600 or 50% of the player’s benefits, whichever is greater. For first 48 months after player’s death, the amount of the benefit cannot be less than $6,000/month for a player who was an active player after 1976 plan year, or $9,000/month for a CRS-31 Name of Benefit or Program and Year Established Players from These Years May Participate Summary of Eligibility Criteriaa Selected Featuresb,c player who was an active player after the 1981 plan year. — For a widow, benefit ends with her death or remarriage. For children, benefit ends upon reaching the age of 19 (or 23, if in college). Termination based on age does not apply if child is mentally or physically incapacitated. Health Reimbursement Account (HRA)d March 1, 2007 2004-present At least eight credited seasons for a player whose last credited season was 2004 or 2005. At least three credited seasons for a player who earned a credited season in 2006 or any later year. — An annual contribution is made to a player’s account in the amount of $25,000 or $50,000, depending upon the terms of the CBA. Total contributions shall not exceed $300,000. — Player may receive reimbursement for medical care expenses only during periods of time when he is not covered by the Group Insurance in the CBA or the Extended Post-Career Medical and Dental Insurance in the CBA. Joint Replacement Benefit Plan 2007f All years Unknown. — Assists retired players who need joint replacement surgery. — Plan provides financial assistance to all eligible former players to cover the cost of surgery. — Additional financial assistance is available from the NFL Player Care Foundation. Line of duty (LOD) disability benefitd April 1, 1970 All years Any player who incurs a substantial disablement (but is not totally and permanently disabled) arising out of NFL football activities, as — Amount of monthly benefit will equal the sum of the player’s benefit credits (see Retirement Benefits) or $1,000, whichever is greater. — Payments continue for duration of substantial disablement, but no longer than 7 ½ years. CRS-32 Name of Benefit or Program and Year Established Players from These Years May Participate Summary of Eligibility Criteriaa Selected Featuresb,c determined by the Retirement Board or the Disability Initial Claims Committee (DICC), that is a significant factor in causing his retirement from football. Player does not have to be vested. — If both an LOD benefit and a T&P benefit are payable, only the larger of the two benefits will be paid. — Application for LOD benefit must be submitted within 48 months after player ceases to be an active player.g Retiree Medicald,h May 6, 1993 1993-present Vested. — Active players receive group insurance benefits: life insurance, and medical and dental benefits. The same medical and dental benefits are provided to former players for a set amount of time, as described below. — Players released or who otherwise severed employment after the first regular season game in the 2002 season, but before the first regular season game in 2005 season, continue to receive medical and dental benefits for 48 months. — Players released after the first regular season game in the 2005 season and prior to the expiration or termination of the 2006-2012 CBA will receive medical and dental benefits for the following 60-month period. Retirement Benefitsd,i September 19, 1962 All years Vested player. — A player earns a benefit credit for each credited season, and a vested player’s monthly pension is the sum of his benefit credits for each of his credited seasons. Under the 2006-2012 CBA, the benefit credits are as follow:j CRS-33 Name of Benefit or Program and Year Established Players from These Years May Participate Summary of Eligibility Criteriaa Selected Featuresb,c Credited Season ----------- Benefit Credit Before 1982 ---------------- $250 1982-1992 ------------------ $255 1993-1994 ------------------ $265 1995-1996 ------------------ $315 1997 ------------------------- $365 1998-presentk --------------- $470 — Any vested inactive player may choose to receive his benefits at the normal retirement age, which is 55 under the retirement plan, or later (that is, deferred retirement). A vested inactive player with at least one credited season prior to 1993 plan year may elect for early retirement (which begins at age 45). Benefits will be adjusted accordingly for a player who chooses deferred retirement or early retirement. Benefits will be increased for deferred retirement, and decreased for early retirement. — A vested player who leaves the NFL on or after March 1, 1977, has at least one credited season prior to the 1993 plan year, and is no longer an employee may elect to receive an early payment benefit in the form of a lump sum, a life-only pension, or a qualified joint and survivor annuity. If a player receives an early payment benefit, his monthly pension will be based upon 75% of the sum of his benefit credits. — A player who chooses an early payment benefit after March 31, CRS-34 Name of Benefit or Program and Year Established Players from These Years May Participate Summary of Eligibility Criteriaa Selected Featuresb,c 1982, will have any subsequent payments for certain benefits (for example, total and permanent disability benefits, line-of-duty disability benefits) reduced by 25%. Second Career Savings Pland July 1, 1993 1993-present A first-year player may contribute to the plan. A player must have at least two credited seasons, at least one of which is for Plan Year 2006 or later, in order to receive a club contribution. — Matching contributions shall be two dollars for each dollar provided by a player. The maximum matching contributions, which vary by plan year under the CBA, are as follow: $20,000 for each year, 2006-2008; $22,000 for 2009; $24,000 for 2010, and $26,000 for 2011. — Beginning at age 45, a player may withdraw money from his account. Severance Payd November 16, 1982 1982-present Minimum of two credited seasons. At least one of the seasons must have occurred during the period 1993-2011. Player’s written request for severance pay must indicate that he intends to permanently sever employment as an active player. — A player’s severance pay will equal the sum of the following: $5,000 per credited season for each season during the period1989-1992; $10,000 per credited season for each season during the period 19931999; $12,500 per credited season for each season during the period 2000-2008; and $15,000 per credited season for each season during the period 2009-2011. — Severance pay is paid in a single lump sum. Payment date varies depending upon when the individual was last involved in a league playing activity and when he submits an application. Supplemental Disability Pland,l July 1, 1993 1993-present Former players who receive T&P disability benefits in the “active football,” “active — Supplemental disability plan benefits are automatically paid to each eligible player. — Effective April 1, 2000, the monthly and annual supplemental CRS-35 Name of Benefit or Program and Year Established Total and Permanent Disability Benefitd,h,n April 1, 1970 Players from These Years May Participate All years, except for an inactive player who does not have a credited season after 1958. Summary of Eligibility Criteriaa Selected Featuresb,c nonfootball,” and “football degenerative” categories. disability plan benefit for each category is as follows: “active football,” $14,670 monthly and $176,040 annually; “active nonfootball,” $7,167 monthly and $86,004 annually; and “football degenerative,” $5,167 monthly and $62,004 annually.m — Players who receive T&P “inactive” category benefits do not receive any benefits under this plan.m Active player (he does not have to be vested) or vested inactive player who is totally and permanently disabled, as determined by the Retirement Board or the DICC. — The amount of a player’s benefit will be equal to the sum of his benefit credits, excluding benefit credits for credited seasons prior to 1958. The benefit amount may be increased as follows for each benefit category: (a) Active football: monthly benefit will be not be less than $4,000 if the disability or disabilities arise out of NFL football activities, arise while the player is an active player, and cause the player to be totally and permanently disabled “shortly after” the disability or disabilities first arise.o (b) Active nonfootball: monthly benefit will not be less than $4,000 if the disability or disabilities do not result from NFL football activities, but do arise while the player is an active player, and cause the player to be totally and permanently disabled “shortly after” the disabilities first arise.o (c) Football degenerative: monthly benefit will not be less than $4,000 if the disability or disabilities arise out of NFL football activities and result in T&P disability before 15 years after the end of the player’s last credited season. CRS-36 Name of Benefit or Program and Year Established Players from These Years May Participate Summary of Eligibility Criteriaa Selected Featuresb,c (d) Inactive: The monthly benefit will not be less than $1,500 ($1,750 for applications received on or after April 1, 2007)p if the T&P disability or disabilities arise from other than NFL football activities while the player is a vested inactive player, or the disability or disabilities arise out of NFL football activities and result in total and permanent disability 15 or more years after the end of the player’s last credited season, whichever is later. (e) Dependent child: monthly benefit will increase $100 per each child who is a dependent.q — Effective for payments made on and after November 1, 1998, a player may receive a T&P payment for a disability resulting from a psychological/psychiatric disorder. This provision applies only to the “active nonfootball” and “inactive” categories, and special rules that pertain to disabilities resulting from other than a football injury. — A T&P disability that is a result of a psychological/psychiatric disorder may be awarded under the provisions for “active football” and “football degenerative”disabilities (and under special rules that pertain to disabilities resulting from a football injury incurred while an active player) if the requirements for such a disability are met and the disorder “(1) is caused by or relates to a head injury (or injuries) sustained by a Player arising out of League football activities (e.g., repetitive concussions); (2) is caused by or relates to the use of a substance prescribed by a licensed physician for an injury (or injuries) or illness sustained by a Player arising out of League football activities; or (3) is CRS-37 Name of Benefit or Program and Year Established Players from These Years May Participate Summary of Eligibility Criteriaa Selected Featuresb,c caused by an injury (or injuries) or illness that qualified the Player for total and permanent disability benefits under Section 5.1(a) [active football].”r — T&P benefit is payable for life or until cessation of total and permanent disability. Workers’ Compensations All years Apparently, all players are eligible. However, workers’ compensation is regulated and administered by state governments, which also means that eligibility requirements and other details vary from state to state. — NFLPA has made arrangements for all players to be covered by workers’ compensation, which is available to employees who have been injured or disabled on the job. — Workers’ compensation may include disability pay or wage loss benefits, a lump sum benefit to compensate for permanent loss of function, and/or payment or reimbursement for medical expenses. Sources: National Football League and NFL Players Association, NFL Collective Bargaining Agreement: 2006-2012, Mar. 8, 2006; NFL Players Association, “ Line of Duty Disability,” Mar. 12, 2008, available at [http://www.nflplayers.com/user/content.aspx?fmid=178&lmid=443&pid=367&type=n]; NFL Players Association, “NFLPA and NFL Announced New Retirement Benefit Initiatives,” news release, July 25, 2007; Bert Bell/Pete Rozelle NFL Player Retirement Plan, Apr. 1, 2001; NFL Player Supplemental Disability Plan, Apr. 1, 2001; Letter from Eugene Upshaw, Executive Director, NFL Players Association, to Reps. John Conyers, Jr., Lamar S. Smith, Linda T. Sanchez, and Christopher B. Cannon, Nov. 5, 2007, p. 1; NFL Players Association, “CBA: Workers’ Compensation Benefits,” available at [http://www.nflpa.org/CBA/Workers_Comp.aspx] as of Nov. 15, 2007, on file with the author; National Football League, “NFL & NFL Players Association Create New Joint Replacement Benefit Plan”; and National Football League “14 Leading Medical Institutions Selected to Assist Retired Players Needing Joint Replacement Surgery,” news release, Dec. 10, 2007; and Gregory P. Guyton, “A Brief History of Workers’ Compensation,” Iowa Orthopaedic Journal, 1999, available at [http://www.pubmedcentral.nih.gov/articlerender.fcgi?artid=1888620]. CRS-38 Note: See the glossary in Appendix A for the definition of terms, such as “credited season,” “plan year,” and “vested player.” a. Since this is only a summary, additional criteria or conditions may apply. b. The actual amount that a particular individual receives is determined by a number of factors, including, for example, the years in which he played and whether the amount of a particular benefit is altered by a succeeding CBA. Also, the receipt of a certain benefit may affect the amount of another benefit an individual receives. For example, receipt of an 88 Plan benefit may result in a decrease in Total and Permanent disability benefits as follows: “The maximum benefit payable for any month shall be reduced, but not below zero, by the amount of any total and permanent disability benefits paid by the Bert Bell/Pete Rozelle NFL Player Retirement Plan and the NFL Player Supplemental Disability Plan. However, the maximum benefit payable for any month shall not be reduced by those total and permanent disability benefits paid to players who are receiving the Inactive total and permanent disability benefit described in Section 5.1(d) of the Bert Bell/Pete Rozelle NFL Player Retirement Plan.” (National Football League and NFL Players Association, NFL Collective Bargaining Agreement: 2006-2012, Mar. 8, 2006, pp. 215-216.) c. The amount, eligibility criteria, and other details of a particular Retirement Plan benefit may change over the years as new CBAs are negotiated and the Retirement Plan is changed accordingly. The details of other (non-retirement plan) benefits may be changed, too, by the NFL and the NFL Players Association. d. This benefit plan or program is included in the CBA. e. The 88 Plan was so named to honor John Mackey, a former Baltimore Colts tight end and member of the Hall of Fame who wore number 88. (NFL Players Association, “NFLPA White Paper,” n.d., available at [http://www.nflpa.org/whitepaper/], p.23.), downloaded Sept. 2007, on file with the author. f. The NFL announced in Dec. 2007 the establishment of the Joint Replacement Benefit Plan, but it appears that implementation will occur at some later date. g. As announced on Feb. 29, 2008, the NFL and the NFLPA modified the deadline for applying for LOD benefits. A player will have 48 months or the number of credited seasons he has earned within which to apply. For example, a player who has six credited seasons will have six years, instead of four years, within which he must apply. The deadline will equal the number of credited seasons a player has, which means, for example, that a player with six credited seasons will have six years h. Retiree Medical is part of the Group Insurance benefit in the CBA, where it is identified as “Extended Post-Career Medical and Dental Benefits.” It is unclear whether Retiree Medical covers injuries sustained as a player. The remainder of the Group Insurance benefit is available to only active players. (National Football League and NFL Players Association, NFL Collective Bargaining Agreement, 2006-2012, pp. 218-219.) i. A former player who is receiving T&P disability benefits when he reaches the normal retirement age of 55 will have his disability benefits converted to a retirement benefit (pension). The amount of the benefit will not change. (Bert Bell/Pete Rozelle NFL Player Retirement Plan, Summary Plan Description, Apr. 2005, p. 18.) j. For example, “[a]n Active Player for three or more games of the 1996 through 1999 seasons [would receive] Benefits Credits [in the amount of] $1,465 ($285 + $330 + $425 +$425 = $1,465). The player will, therefore, receive $1,465 per month when he begins to receive his pension benefit at age 55.” (NFL Players Association, “Rules and Regulations: Player Benefits,” n.d., available at [http://www.nflpa.org/RulesAndRegs/PlayerBenefits.aspx] as of Aug. 21, 2007, on file with the author.) k. Specifically, the benefit credit of $425 is for each credited season from 1998 “through the Plan Year that begins prior to the expiration of the Final League Year.” (Bert Bell/Pete Rozelle NFL Player Retirement Plan, p. 11.) l. Per the NFLPA, the Supplemental Disability Plan was created because, pursuant to federal statute(s), there is a cap on the amount of disability benefits a plan may pay, such as the retirement plan for former players. (Letter from Upshaw to Reps. Conyers, Smith, Sanchez, and Cannon, p. 19.) m. See “Total and Permanent Disability Benefit” in the table for information about the four categories of T&P benefits. CRS-39 n. In Feb. 2008, the NFL and the NFLPA announced the following changes to the T&P disability benefit: “Players who took their NFL pension early, and are therefore ineligible to apply for and receive disability benefits, will be offered a new one-time opportunity to apply for total and permanent disability benefits. These players may establish their disability through either a medical examination or by a total and permanent disability determination from Social Security. The opportunity to apply for benefits will begin on April 1, 2008. Applications will be accepted through July 31, 2008. Players who have received a total and permanent disability determination from Social Security will not need to separately establish disability under the NFL plan. Players who were denied benefits under the NFL plan but have subsequently been found [to be] disabled by [the] Social Security [Administration] may have their NFL cases reconsidered. The other good news for retired NFL players is that NFL disability awards are not offset by the amount of any award paid by Social Security.” (National Football League and NFL Players Association, “NFL and NFL Players Association Expand Disability Benefits Program for Retired Players,” Feb. 29, 2008, available at [http://www.nflplayers.com/user/content.aspx?fmid=178&lmid=443&pid=422& type=n], p. 1.) o. “A Player who becomes totally and permanently disabled no later than six months after a disability(ies) first arises will be conclusively deemed to have become totally and permanently disabled ‘shortly after’ the disability(ies) first arises, as that phrase is used in subsections (a) and (b) above [descriptions of benefits for players who experience active football and active nonfootball disabilities], and Player who becomes totally and permanently disabled more than 12 months after a disability(ies) first arises will be conclusively deemed not to have become totally and permanently disabled ‘shortly after’ the disability(ies) first arises as that phrase is used in subsections (a) and (b) above. In cases falling within this six-to twelve-month period, the Retirement Board or the Disability Initial Claims Committee will have the right and duty to determine whether the ‘shortly after’ standard is satisfied.” (Bert Bell/Pete Rozelle NFL Player Retirement Plan, p. 20.) p. The NFL and the NFLPA announced on Feb. 29, 2008, that “the minimum benefit post-career” for “non-football ‘total and permanent’ disability” had doubled from “$20,000 to $40,000 per year for retired players who become disabled unrelated to football.” (National Football League and NFL Players Association, “NFL and NFL Players Association Expand Disability Benefits Program for Retired Players,” p. 1.) q. A child is considered to be a dependent only until reaching the age of 19; if he or she is in college, age 23 is the threshold. (Bert Bell/Pete Rozelle NFL Player Retirement Plan, p. 4.) r. Bert Bell/Pete Rozelle NFL Player Retirement Plan, p. 21. s. The year that this benefit was established is unknown. CRS-40 NFLPA Retired Players Department The Retired Players Department, established in 1984, acts to meet players’ needs with the right services; continuously communicates and involves players of all ages to create an exclusive fraternity; works collaboratively with other NFLPA departments and Players Inc.120 to give outstanding value to its members; provides leadership, administration, coordination and implementation to serve the needs of retired players and retired player chapters.121 The department’s objectives are ! “To establish more local chapters [of retired players]”; ! “To increase the future pensions and benefits for all players”; ! “To establish a formal line of communication between active and retired players”; ! “To build a network of retired players for business contacts and second careers”; ! “To help build the image of the game and promote it to the benefit of players; and” ! “To raise funds for the Players Assistance Trust (PAT).”122 Accomplishments of the Retired Players Department include ! “[Assisting players] in gaining pension and disability benefit increases”; 120 “In September 2000, NFL PLAYERS and the NFL entered into a historic partnership to provide player group licensing rights to NFL sponsors. With this deal, NFL sponsors are given the right to utilize players as part of their sponsorship agreements.... Activities include marketing, licensing, special events, corporate sponsorship, media and content development, publishing, website (NFLPLAYERS.COM) and other promotional programs. PLAYERS INC is a fully integrated marketing company for active and retired NFL players. These activities generate guaranteed royalties to PLAYERS INC and the players, in addition to providing financial support to the NFLPA. The organization is committed to meeting the needs of all NFL players in the National Football League by creating player marketing opportunities, increasing brand awareness and developing valuable business partnerships.” (NFL Players Association, “Sponsors/Licensees,” available at [http://www.nflplayers.com/ user/template.aspx?fmid=182&lmid=243&pid=0&type=l].) (Capitalization is in the original.) 121 NFL Players Association, “Retired Players Department: FAQs,” n.d., available at [http://www.nflpa.org/Faqs/Faqs.aspx?printer_friendly=yes] as of Nov. 2, 2007, on file with the author, p. 1. 122 Letter from Upshaw to Reps. Conyers, Smith, Sanchez, and Cannon, p. 27. CRS-41 ! “[Administering] the PAT Fund, resulting in over $5 million in payments on behalf of former players in need”; ! “[Assisting] in networking between former players and potential employers”; ! “Helping former players take advantage of workers compensation benefits under state law; and” ! “Providing the services of medical professionals in various areas including orthopedic and cardiovascular.”123 Any player who had signed a contract with a team is eligible to join a chapter, and there are 33 chapters of former players across the country.124 Chapter presidents attend the annual chapter officers meeting and the Retired Players Convention. An election is held at the latter for the Retired Players Steering Committee, which is “the only elected national body representing retired players....”125 Players Assistance Trust (PAT) Fund The players association created the Professional Athletes Foundation (PAF), a 501(c)(3) organization under the Internal Revenue Code, in 1987.126 The foundation’s mission is to “provide vocational, educational, recreational and athletic opportunities for people of all races, religions and nationalities, male and female, wherever they may live, including but not limited to needy, former, amateur and professional athletes and young people who might not have the fullest opportunity to develop their vocational and educational capabilities.”127 In 1992, the foundation established the Player Assistance Trust (PAT) to “provide financial assistance to former professional and amateur players and their families....”128 Specifically, the PAT is to provide short-term financial assistance to former players who find themselves in a financial crisis. A primary goal of the fund is to assist players who are faced with financial problems created by catastrophic illness.... The funds cannot be used for long-term financial support. Grants are not available for supplemental 123 Ibid. 124 Ibid., p. 26. 125 NFL Players Association, “Retired Players Department: FAQs,” p. 1. 126 This organization is a tax-exempt organization under the Internal Revenue Code. For more information, see U.S. Dept. of the Treasury, Internal Revenue Service, “Exemption Requirements,” available at [http://www.irs.gov/charities/charitable/article/0,,id= 96099,00.html]. 127 NFL Players Association, “Retired Players Department: FAQs,” pp. 4-5. 128 Ibid., p. 5. CRS-42 income to pension benefits. Grants are not available as loans for business transactions.129 The maximum grant amounts available are $10,000 for educational purposes and $20,000 for financial or medical assistance; not every applicant, however, receives the maximum amount.130 Donations from the players association, the NFL, and individuals, and a percentage of the fines levied against active players provide funding for the PAT. Since 2000 and through fall 2007, the amount of money from fines contributed to the PAT was $2,814,692.131 The NFL has contributed the following amounts, which total $6,350,000: ! ! ! ! ! ! ! ! ! ! 1997: $350,000 1998: $350,000 1999: $350,000 2000: $700,000 2001: $700,000 2002: $700,000 2003: $700,000 2004: $1,000,000 2005: $1,250,000 2006: $1,250,000132 Data about grants awarded during the period 1991-2007 are provided in the following two tables. Table 5 shows how many grants were awarded, by type (for example, education, financial, and medical). Table 6 shows how many grants were awarded each year. A total of 860 grants have been awarded since the inception of the PAT, and, according to other information provided by the NFLPA, grants have been awarded to 662 different players and widows of players.133 129 NFL Players Association, “Players Assistance Trust Fund Grant Guidelines,” n.d., available at [http://www.nflpa.org/pdfs/Charitywork/PAT_Application_2007.pdf], downloaded Sept. 2007, on file with the author, p. 1. 130 Ibid., p. 2. 131 Letter from Goodell to Reps. Conyers and Smith, p. 12. 132 Ibid. 133 Letter from Upshaw to Reps. Conyers, Smith, Sanchez, and Cannon, p. 28. CRS-43 Table 5. Players Assistance Trust Fund Grants, by Grant Type, 1991-2007 Number and Percentage of Grantsa Amount and Percentage of Moneya Education 92 11% $398,393.22 7% Education/Financial 11 1% $72,597.66 1% Financial 585 68% $3,861,965.46 70% Medical 119 14% $698,313.49 13% Medical/Financial 52 6% $473,941.67 9% Unknown 1 <1% $3,315.00 <1% Total 860 $5,508,526.50 Type of Grant Source: Data provided by the NFL Players Association; calculations performed by the author. Note: The data for 2007 may be incomplete as the data were provided before the end of 2007. a. Percentages have been rounded. Significant percentages of the number of PAT grants (88%) and the amount of money (92%) have been awarded for financial or medical purposes, or for a combination of the two. Only 12% of the grants, and 8% of the money, were awarded for education and education/financial purposes. The largest average grant, $6,855.29, was for medical and medical/financial purposes. The average amount of a financial grant was $6,601.65. The average amount of an education and education/financial grant was $4,572.73. Overall, the average amount of a grant was $6,405.26. Table 6. Players Assistance Trust Fund Grants, by Year, 1991-2007 Year Number and Percentage of Grantsa Amount and Percentage of Grantsa,b Average Amount of Grantb 1991 2 <1% $4,836 <1% $2,418 1992 19 2% $92,120 2% $4,848 CRS-44 Year Number and Percentage of Grantsa Amount and Percentage of Grantsa,b Average Amount of Grantb 1993 33 4% $134,937 2% $4,089 1994 25 3% $122,609 2% $4,904 1995 37 4% $190,019 3% $5,136 1996 48 6% $354,419 6% $7,384 1997 51 6% $341,975 6% $6,705 1998 46 5% $275,267 5% $5,984 1999 46 5% $387,044 7% $8,414 2000 17 2% $91,668 2% $5,392 2001 35 4% $210,493 4% $6,014 2002 32 4% $205,505 4% $6,422 2003 45 5% $281,239 5% $6,250 2004 56 7% $360,824 7% $6,443 2005 130 15% $867,392 16% $6,672 2006 143 17% $834,881 15% $5,839 2007c 95 11% $753,300 14% $7,929 Total 860 $5,508,528 $6,405 Source: Letter from Eugene Upshaw, Executive Director, NFL Players Association, to Reps. John Conyers, Jr., Lamar S. Smith, Linda T. Sanchez, and Christopher B. Cannon, Nov. 5, 2007, exhibit C; calculations performed by the author. a. Percentages have been rounded. b. Dollar amounts have been rounded to the nearest dollar. c. The data for 2007 may be incomplete as the data were provided before the end of 2007. CRS-45 Despite the possibility that the data for 2007 may be incomplete (for the reason stated above), over 40% of the grants were awarded during the years 2005-2007; 368 grants, 43% of the total, were awarded during this period. Accordingly, the percentage of grants awarded in each of these years is in double digits. For the previous 14 years, the percentage of grants awarded each year ranged from less than 1% to 7%. Consistent with these results, 45% ($2,455,573) of the total amount of the grants was awarded during the period 2005-2007. The reasons for the relatively consistent percentage of grants for each year from 1991 through 2004, and the noticeable increase in 2005 followed by similarly high percentages in 2006 and 2007 are unknown. More former players needed assistance during these three years, but it is unclear whether the rise in the number of grants is related to, for example, the type and amount of benefits the players received from NFL/NFLPA-funded benefits and whether these benefits met their needs; wider dissemination of information about the PAT (if indeed information was disseminated more widely than had been done previously); or changes, if any, that were made to the PAT applications process. Regarding the average amount of a grant, there has been a general upward trend. Aside from the initial year, when only two grants were awarded and the average grant amount was $2,418, the average amount has increased from $4,848 in 1992 to $7,929 in 2007. However, the highest average amount, $8,414, was in 1999, and the average amount in 2006 was $5,839. The NFL has noted that individual clubs also fund efforts involving former players; usually, these efforts are directed toward players who were members of a particular club.134 The Alliance In May 2007, four organizations — the NFL, the NFLPA, the NFL Alumni Association, and the Pro Football Hall of Fame — came together to form the “Alliance,” which “is aimed at addressing the medical concerns and needs of retired players, including joint replacements, cardiovascular health programs and assisted living arrangements.”135 In December 2007, the NFL announced the establishment of the NFL Player Care Foundation, which is “governed by representatives of members of the Alliance,” and which apparently will administer the $17 million that has been donated to date.136 In February 2008, the NFL and the NFLPA announced that four former players — Andre Collins, Willie Lanier, Randy Minniear, and Ozzie Newsome — had been appointed to the board of the directors for the NFL Player Care Foundation, and that these board members would select additional members.137 134 Letter from Goodell to Reps. Conyers and Smith, p. 12. 135 Ibid.; National Football League, “NFL Clubs Commit $10 Million in Additional Funding to Retired Players for Medical Assistance.” 136 National Football League, “NFL & NFL Players Association Create New Joint Replacement Benefit Plan.” 137 National Football League and NFL Players Association, “NFL and NFL Players Association Expand Disability Benefits Program for Retired Players,” p. 3. CRS-46 The foundation will coordinate and provide funds to the programs established by the Alliance.138 When the league and the players association announced, in July 2007, the formation of this group, they also announced that the Alliance had received $7 million.139 NFL team owners approved a donation of an additional $10 million in October 2007.140 Fines paid by active players to the NFL for on-field infractions, and contributions from the NFLPA, other members of the Alliance, and “other interested retired player groups” will supplement the $17 million.141 As part of this initiative, the NFL and the players association created the NFL Player Joint Replacement Plan in fall 2007. Fourteen medical centers have been selected to provide these services: [The medical centers will] assist eligible retired players in need of joint replacement surgery.... The medical facilities, carefully chosen for their expertise, high-quality service and reputation, will make available specialized, coordinated care to players covered by this new program. The program provides a common application process to assist them gain access to the institutions. The plan also will provide financial assistance to all players, regardless of their financi [Text truncated at 120,000 characters. The full text is on the page linked above.] --- Source: Frix Law Library, https://www.frixlaw.com/law-library/documents/crs%3ARL34439. Public record. Not legal advice.