It gives the designated clubs privileged/exclusive access to marketing, merchandising and "fan engagement" activities in the target markets with league support and money.
The Browns got Nigeria (and vice versa) because David Njoku is one of their best players (his parents emigrated to New Jersey shortly before he was born).
My guess is that the Spanos family opted out of an initiative that could possibly require them to spend money and that Harbaugh ceased to care once told that the Roman Empire was not available.
I've gone through the 32, and other than the aforementioned Chargers and Bills, also missing are the Packers, Bengals, Ravens and Washington Whatevers.
I assume the Bills either feel confident in their place in southern Ontario or the league already formally considers that part of their territory and therefore not part of Canada for the purposes of this exercise.
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