NCAA schools are locked in an arms race trying to buy players with NIL money and ridiculously extravagant facilities. Boosters are going to reach a breaking point soon (See Alabama's cries yesterday asking for boosters to step up). I think it's very, very, unlikely that any school would spend the $100 million or $200 million or more necessary to secure the facilities, staff, and infrastructure to start a JUCO.

Instead what will likely happen is that marginal guys who used to be PWO players under the larger roster rules will go the JUCO route and try to develop enough in 2 years to get a scholarship. You might get a chunk of players who would normally be offered D1 scholarships decide to go the JUCO route to get playing time instead of being buried on the depth chart at a FBS school.

Also, there are 3 division of the NJCAA. D1 schools can offer full ride scholarships. D2 schools can only offer tuition. D3 JUCOs can't offer any athletic scholarship money. Any new school that was formed would have to start out as a D3 JUCO, then work it's way up to D1 status over a period of years or decades. I just don't see it happening.