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Also, I think they have said that they want the home team for these games to be a team that doesn't sell out its games.
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Teams with less than 99% home attendence this past year:
Atlanta 98.9%
NY Jets 98%
KC 98%
Miami 97%
San Fran 97%
Dallas 96%
Pitt 96%
Indy 95%
New Orleans 94%
Detroit 94%
San Diego 93%
Chicago 93%
Oakland 93%
Jacksonville 91%
Buffalo 85%
Logically, the NFL would want a team that doesn't have serious Super Bowl aspirations, so that knocks out Indy, San Diego, Chicago and perhaps Pittsburgh. It would be unfair to New Orleans. So that leave the Falcons, Jets, Chiefs, Fins, Niners, 'Boys, Lions, Raiders, Jags and Bills.
Attendence Linky
As an aside, there are 13 teams that are listed above 100% attendence, and only 1 team (St. Louis) listed at exactly 100%. I know the Eagles added standing-room tickets this year which pushed their attendence over 100%, but what gives with the other teams?