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Were I NHL counsel, I would not be the slightest bit concerned about denying Balsillie and approving someone else with a lower offer even if those others also wanted to move the team. The NHL has no obligation to grant an NHL franchise transfer to Balsillie. They are not under contract with him, nor do they have a duty of care that might create an independent tort. They do not have to treat him fairly. They do not even have to give him a reason for denying his bid.
However there are two parties here, Leipold and the NHL. An owner has the right to own/operate his property without undue interference as long as he abides by the agreements he has accepted in becoming a member of the club (or as the majority rules which all accept as the guiding principle). In this sense, the agreement for the sale is between Leipold and Balsillie. Of course, the NHL has the right to review and approve any transfer of ownership only on the basis of clearly defined NHL rules. These cannot be vague and made up on the fly because such control would basically turn an owner into a silent partner. Yes, the NHL does grant franchises and may be able under extreme conditions to assume control of a team... yet let's not overlook who actually has their money in this. Basically 30 different individuals (or groups of individuals) who mainly will try to protect THEIR asset.