NFL Making Thigh and Knee Pads Mandatory in '13

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Terrell Suggs, the 2011 Defensive Player of the Year, could fall into that category. Suggs recently underwent surgery for a torn Achilles tendon. If the Ravens believe Suggs can make it back by midseason, as the linebacker has predicted, they could use the IR special designation for him.

New England Patriots owner Robert Kraft likes the adjustment because he knows firsthand how devastating an injury to a star player can be.

"It's good because I think it keeps the excitement in the game," Kraft said. "I know when we lost Tom Brady there was a feeling he could have come back at the end of the year. It would have been great for the fans, and I think every team has someone in that category."

Goodell said the league is closer to a decision on what to do with the Pro Bowl, which he called "not a competitive game" in January. He wants more discussions with the players about how to improve the quality of the game, but dropping it entirely still is possible.

"The issue is we recognize it is an all-star game, but we also believe fans expect more from an NFL game," he said. "If we believe we can achieve that, we want to give them every opportunity to do that."

Only New Orleans, site of next year's Super Bowl, and Honolulu are being considered if the Pro Bowl is held.

The league approved the Buffalo Bills playing one regular-season game every year from 2013-17 in Toronto, extending that international series. Expansion of the international series in London could come as early as next year, Goodell added.

While Cowboys and Redskins executives were in the owners meetings they learned that their grievance against the NFL and the NFLPA over reductions in their salary caps was dismissed. Dallas loses $10 million over this season and next and Washington loses $36 million.

Washington general manager Bruce Allen said the team is "obviously disappointed." Asked how losing another $18 million might inhibit the Redskins, he said: "We'll see. We'll have time to talk about it."

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AP Pro Football Writer Arnie Stapleton in Denver, and Sports Writers Charles Odum in Atlanta and Josh Dubow in Oakland contributed to this story.

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