No, it's the NFL

When Modell moved the Cleveland franchise to Baltimore, the league decided to say that the Browns had suspended operations and the records, name, etc. would remain in Cleveland. Meanwhile, Modell was allowed to take the team personnel, equipment, etc. with him to Baltimore to form an "expansion" team.

The Browns were in limbo for a couple years and then reformed. They weren't technically considered an expansion team, but they were restocked via an expansion draft.

Pretty sure they were trying to avoid a repeat the fiasco of the Colts move to Indy and the uproar that took place among fans and former players.