Most of the schools that are not at the 85 scholarship limit did not manage their roster correctly. If you take Grad transfers, for instance, they count as 1 scholarship out of the 25 allowed per year, but only stay on campus for 1 year, instead of 4 or 5 for a HS recruit. If you take JUCOs, they only stay on campus for 2 years at most and some move on quicker as there is a reason they are in JUCO. And, the 25 scholarship limit encourages a school to develop an effective walk-on program as the kids can get added to the roster without counting against the 25 scholarship limit.
People cite the Kansas scholarship problem as the reason to add more scholarship flexibility, but Kansas' problem was self inflicted as they recruited way too many JUCOs. During David Beatty's last 2 classes as Kansas coach in 2017 and 2018, he recruited 24 JUCOs out of 46 recruits. And, they have turned over head coaches too much:
Turner Gill: 2 seasons
Charlie Weiss: 2.33 seasons
David Beatty: 4 seasons
Les Miles: 1 season so far
There is no way you constantly can turn over head coaches and recruit a ton of JUCOs and or transfers and maintain roster stability.