complicated answer is the way the schools structured the NCAA. Some issues are limited to just the individual DI football subdivisions. Other issues are limited to individual division levels. While the remaining issues apply to all 3 division levels. At least in terms of who can vote on an issue and which route the proposal has to take through the various NCAA committees and subcommittees in order to get approved. Remember all 3 division levels have their own committees and subcommittees. Each rep (aka school) on the committee/subcommittee is allowed to serve for a specific term and that spot typically will rotate within a conference or conferences to ensure everyone has an opportunity to be represented at some point in time. If you think about it, then you should realize that the NCAA is structured very similarly to how Congress is structured. Even though I am not as familiar with how the NAIA is structured, I suspect it is structured the same way as the NCAA. At least it might be safe to conclude that if there was a better way to organize an athletic association, then someone would have done it by now.