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Two main reasons.
1. The Draft and contracts. A team that sucks has a chance at drafting a good player and signing them to a long term contract so they can hold on to them.
2. The salary cap. The NFL is set up in a way that each team is only allowed to spend a certain amount on its player payroll. For 2009 that cap was 128 million. So you can pay a guy whatever you want, but you only have 128 million to put an entire team together. If there were no cap you would likely see teams that just bought the best players, but the cap keeps that from happening.
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