A League without Ladders — Football Case Study

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Dispatch: a series dedicated to immersive storytelling, where our photographers and writers journey to chosen places, combining evocative imagery with long-form editorials to uncover and share unique football cultures.

A LEAGUE WITHOUT LADDERS

Orange County SC and the Limits of the U.S. Football System

Words and Photography by Marvin Heilbronn
March 19, 2025

IRVINE, California — Packed train cars and caravans of fans flooding toward stadiums are common sights at football matches around the world. However, in Orange County, California, it was along lines of cars entering the stadium parking lot that signaled opening day had arrived—just one of the many ways football in America differs from the global game. Meanwhile, in Section 9 of the parking lot, Orange County’s sole supporter group, About County Line Coalition, gathered before the march to the stadium: their flares, flags, and chants reflecting a growing effort among American football fans to replicate and cultivate their own unique supporter culture.

In the United States, two major leagues dominate the professional soccer landscape: Major League Soccer (MLS), home to the wealthiest and most recognizable teams, and the United Soccer League (USL), where local communities rally around clubs composed of MLS retirees, rising young talents, and everything in between. Unlike in other countries, these American leagues do not function as a cohesive system, as promotion and relegation do not exist in American soccer. Instead, as is often the case in the U.S., money dictates the sport’s structure resulting in the MLS comfortably operating under a franchise model that attracts investors by guaranteeing their clubs remain at the top level regardless of performance.

It is no secret that financial power plays a significant role in football globally. Even RB Leipzig, backed by Red Bull’s deep pockets, had to spend eight years climbing the German football pyramid after purchasing the playing rights of fifth-tier side SSV Markranstädt. But, in the U.S., entry into MLS is simply a matter of “buying in.” In 2013, New York City FC paid a record $100 million expansion fee for the right to join MLS in 2015. This record has been shattered multiple times since, most recently by San Diego FC, which paid an astonishing $500 million to become MLS’ 30th club.

It is a mistake to view MLS and USL as America’s equivalent to a first and second division, because no matter how well a USL team performs or how poorly an MLS club fares, there is no opportunity for movement. But still, many in the U.S. perceive these leagues as a hierarchy. This means that despite San Jose Earthquakes losing 25 of their 31 games last season, the existential dread of relegation that would grip most clubs around the world was absent, as their place in the league will always remain unchallenged.

“Promotion and relegation brings a competitive edge to sports—it adds excitement and brings fans closer to the game. Every point matters, and your fans develop a different type of loyalty. It builds a community and a passion that elevates the sport.” — Enzo, traveling Oakland Roots SC fan.

Despite the absence of promotion and relegation, which typically fosters intense competition and deepens fan engagement worldwide, many American clubs—both in MLS and USL—have worked hard to build passionate supporter cultures: Orange County Soccer Club (OCSC) has been a standout example. The club, which could have experienced promotion and relegation if in effect after winning the USL Championship in 2021 and finishing last in 2022, has cultivated a loyal fanbase despite being surrounded by three major MLS teams: LAFC, LA Galaxy, and the league’s latest addition, San Diego FC.

Although OCSC boasts a strong community and culture, many of their fans feel there is a ceiling limiting not just their club’s growth, but the growth of the sport as a whole. Without the possibility of promotion, there is quite literally no room to grow. This overarching hopelessness felt by fans is why the USL’s recent announcement of plans to launch a Division One professional league and create a system of promotion and relegation in 2027, is so exciting. This prospective league will rival the MLS, marking a pivotal moment for the USL and the future of soccer in the U.S.

“The lack of a promotion and relegation system is completely holding American soccer back. If the USL actually follows through with it, we will overtake MLS in popularity.” — “Haggis”, Orange County SC fan.

From disappointing World Cup performances to academy players continuously seeking opportunities abroad, American soccer has many areas to improve in. But at the very least, this new system of promotion and relegation can represent a crucial step towards building a stronger football culture—one that could ultimately benefit players, clubs, and fans alike.

OCSC stands as a beacon of what football in America could become. With a recently constructed stadium, a history of developing players who flourish in top European leagues, and a devoted fanbase, OCSC embodies what is right with the game in the U.S.

“This club means everything to me. It’s community-driven, local, and grassroots. I’ve only been coming to games for four years, but watching the growth has been beautiful. The way the club and the community support Orange County—there’s nothing like it. It’s special.” —Mark, Orange County SC fan.

Under the USL’s new system, Division One will sit atop the league’s pyramid, followed by the second-tier USL Championship and third-tier League One, with USL League Two and USL Youth leagues forming the semi-pro and youth sides. Orange County SC would find itself in the second tier within this new structure.

The exact composition of the new league remains uncertain, and U.S. Soccer will still impose significant restrictions. Division One leagues in the U.S. must feature at least 12 teams spanning the Eastern, Central, and Pacific time zones, with 75% of clubs based in markets of at least one million people. Stadiums must have a minimum capacity of 15,000, and leagues must demonstrate financial sustainability. While some USL Championship clubs are expected to make the jump to the first league, the USL is also exploring new ownership groups that meet strict financial requirements, including a required principal owner holding a minimum 35% stake and a net worth of at least $40 million or an ownership group valued at a collective $70 million.

The launch of a promotion and relegation system wouldn’t just elevate American soccer, it would redefine it. By breaking the cycle of closed-league stagnation, it would ignite competition, strengthen the bond between clubs and their communities, and open pathways for teams and players to rise on merit rather than financial backing alone. This is more than just structural reform: it’s an opportunity to align with the global game, to inspire a new generation of fans, and to create a football culture that is built on ambition and passion.—

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