Pat, it seems you are assuming the school itself negotiates these NIL deals with the recruit, but that is often not the case. The Rashada NIL deal--which has been confirmed to have been $13M by dozens of sources, so I believe the number is accurate--was negotiated by someone with UF's collective, known as the Gator Collective. The collective made the deal with Rashada, but the big boosters who fund the collective reportedly balked at the size of the deal (and who can blame them), and that apparently led to this problem. After the collective's money source(s) said "no," the collective didn't have the money to fund the deal that was promised to Rashada.
The collectives have become a story (and problem) unto themselves. I think some schools--like ND--have attempted to exercise some influence over the collectives so they don't engage in inappropriate conduct. Other collectives, like UF's apparently, are more likely to go out there and act like a bunch of cowboys.
Here is an interesting article (written by a law firm) explaining and giving some background information on NIL collectives:
www.burr.com
Regarding the NCAA policing the collectives, here is an interesting quote from the article:
"Moreover, based upon the Supreme Court’s weakening of the NCAA due to the Alston decision, the NCAA’s current state of flux and related staff reductions, and the NCAA’s apparent reluctance to invite and defend additional antitrust lawsuits, schools and NIL collectives are grappling with whether, and to what extent, the NCAA has the resources or appetite to police NIL collectives."
So while it is crazy to think that Rashada was offered a $!3M NIL deal, I think it is likely true and it remains to be seen what the fallout will be following the apparent collapse of the deal.