The sanctions dwarf those handed down by the N.F.L. against the New England Patriots in 2007 for what became known as Spygate. There were no suspensions when the Patriots were found to have improperly videotaped opponents’ signals, but the Patriots lost a first-round draft pick. Their coach, Bill Belichick, was fined $500,000, and the team was fined an additional $250,000.

The Saints’ penalty seemed designed to get the attention of every team in the league in much the same way the suspensions of the star players Paul Hornung and Alex Karras in the 1960s for gambling sent a message about the league’s lack of tolerance for that activity.

While players have informally exchanged money for big plays like interceptions and fumbles for years — a violation of league rules — the N.F.L. was troubled by a program that blatantly promoted injuring opponents. Moments after the punishment was announced, Goodell issued an edict that every team owner and head coach must certify in writing that no such program existed in their organizations.

“We are all accountable and responsible for player health and safety and the integrity of the game,” Goodell said. “We will not tolerate conduct or a culture that undermines those priorities. No one is above the game or the rules that govern it. Respect for the game and the people who participate in it will not be compromised.”

The severity of the penalties surprised many people around the league. They had assumed that Payton might be suspended for a few games.

Drew Brees, the Saints’ quarterback, wrote on his Twitter page: “I am speechless. Sean Payton is a great man, coach, and mentor. The best there is. I need to hear an explanation for this punishment.”

But others, including players from other teams, said on Twitter the Saints got what they deserved. Goodell has said repeatedly that improving player safety is a primary goal. But players have frequently complained about the punishments they have received for hard hits, and they were watching to see how Goodell handled a situation in which coaches and front-office personnel had committed wrongdoing.