This may help explain Penn State’s scholarship situation. From Philly.com
Loss of scholarships will cripple Penn State team
"As part of the sanctions agreed on by NCAA president Mark Emmert and Penn State president Rodney Erickson, Penn State football will be limited to 15 scholarships per class from the 2013-2014 academic year through 2016-2017, and cannot exceed 65 scholarship players from the 2014 season through the end of the 2017 season.
While the 2018 team will be eligible for 85 scholarships, Penn State won't have a team made up of four classes recruited at the usual 25 scholarships until 2020."