The interesting thing about the theory around "cost containment" intercollegiate football, and the divide of division 1 into 1A and 1-AA, is that had the Supreme Court ruled differently in the Oklahoma Board of Regents and University of Georgia case v. the NCAA around television broadcasting of college football, 1-AA football probably becomes quite successful.
As it was, the supreme court opened up the floodgates in the mid 80s, and aside from the Ivy League, there is no college football conference in the country that has not been changed dramatically since as conferences and university presidents and commissioners jockeyed for TV money.
As for the OP question, In the early 90s, AFTER Toner left the AD job, there was a lot of prep work and talk put into the upgrade of UCONN football, but it got shelved for a number of years because of the roadblocks that went up about building and adequate stadium and infrastructure. The constant turmoil in the Big East along the football and basketball divide, with programs wanting in and threatening to leave started in 1991. It wasn't until 1996 or so, that UCONN (along with Villanova) was seriously considered to upgrade and join the football conference because the conference needed some kind of stability along basketball and football lines. UCONN BOT voted on it, and it was officially approved in October 1997. The stadium, which it all hinged on, was shot down numerous times, and ways, and didn't become reality until the summer of 2000, based on some creative politicking by Rowland.
Basically, the upgrade happened, as fast as it possibly could based on all of the dynamics around it.