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Why does it all of a sudden matter that states would be left out? You think the government will get involved and put a stop to all of this?It's just not enough schools in enough places to make it viable. I just listed some of the states that would be left out, but beyond that, the whole transfer ecosystem would be severely reduced.
This would have repercussions for the NFL as well since the D2 schools (i.e. Colorado, Utah, Arizona) would have an AAC level of money to work with.
Essentially, the P2 would need to go back to 110 scholarships to make it all work.
I'm not following your transfer ecosystem thing.