It's very simple.
It's because the "decision-makers" have a "mixed bag" of opinions. Meaning, they are more concerned with "will these rule changes help Nick Saban more", rather than analyzing this from the athletes' perspective. And we have seen this across the board on the non-revenue sports as well.
Rather than to say "we have had an unprecedented 2-year cycle involving reduced revenues and strange scholarship rules, we might need to (temporarily) break our rules on whether the school's general funds can be used for athletics", you see ADs who are slashing non-revenue sports and coaches limiting scholarship offerings, which is reducing OPPORTUNITY not just in football, but in all sports (except, perhaps, basketball).
When you look at how a major sports union works, they try to increase salaries for all players, they try to get more benefits for all players, they often try to minimize sanctions to players that get into legal or addiction problems. But the NCAA has never been an advocate of student-athletes, they only serve the universities. Therefore, the NCAA just doesn't care that hundreds of student-athletes (both high school grads and transfers) will have greatly reduced scholarship opportunities. The NCAA has been fighting NIL tooth-and-nail.
So, yeah, you might have a few university presidents and ADs and coaches who can do the math and see what the future holds. But you also have a bunch of those douchebags who will sit on their ****s and do nothing just because they are worried about whether Dabo will checkmate them under the new rules.
Student-athletes will lose scholarships, drop out of schools, and fail to graduate. But, hey, it will all be "fair" because every school is bound by the same rules. Right?