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That's a pricing convention. But it doesn't have anything to do with the cost of delivery. I'm not debating the merits of it - I'm just saying that it using in/out of state tuition numbers when calculating what it costs to deliver a scholarship doesn't make any sense. As a straw man - if the 2022 team is completely comprised of in-state players, does the cash flow of the school get any better? No. But the fake math that will spawn news articles in 2022 will say that the program is more profitable.
The issue being - we aren't getting money for the scholarships - so assigning different values to something that we are giving away for free is a notional concept - and pretty meaningless.
Turn it around...If the straw man 2022 team was completely out of state...and the university did not receive the state subsidy for these students and only received a partial education cost reimbursement (because the students are not state residents and not partially tax supported)...than the cost to the U go up.
You seem to miss the fact that state universities whose educational costs are, in part, subsidized by state tax money...all report in-state and out of state students to their oversight bodies...and the subsidized students in one column, and unsubsidized in the other (who pay the subsidy difference individually), must equal total costs.
The cost to the university is different for out of state students if the taxpayers of the state opt not to subsidize students who are residents in other states. The university must make up the difference by charging increased tuition.
I suppose that the state could waive out of state charges for athletic scholarships...but that opens more cans for the worms to wriggle out of.