Considering how the NFL owners collectively try to squeeze every last dollar they can out of NFL customers, I do find it a bit odd that they would pay Goodell as much as they do. I would think that they would be able to find some up and coming exec with an MBA and semi-relevant business experience to take the position for half as much money. Factor in the additional unnecessary costs from their various investigations and court cases, that's about an extra million dollars in every owner's pockets every year.
Of course the problem for the 32 is that any potential applicant is going to expect to make the same kind of money that Roger did, so that is probably not a realistic expectation.