"Lack of institutional control" is no small thing and it is not the kind of finding that suggests one minimal offense, but rather several offenses the university should have been on top of.
I wouldn't be surprised if the NCAA is in a bit of a bind here, having dragged this investigation out for a year longer than it originally said it would. In other cases, Penn State being the most recent, it's been noted that the NCAA really isn't an investigative body and tends to wait and see what other authorities come up with before making a decision. The NCAA was the absolute last authority to weigh in on Penn State and basically did a "what he said" riding on the coattails of Louis Freeh report, commissioned by Penn State's Board of Trustees. By then, the U.S. Education Department had done its investigation, the PA DOJ had done it's investigation and everything was pretty damning and out in the open for the NCAA to cherry pick.
At Montana, that's not the case. The Barz report was didn't exactly flame UM Athletics, but rather put things in the context of UM as a whole. The DOJ and Ed investigation wrapped up with UM agreeing to some training steps, but otherwise admitting no wrongdoing. The Jordan Johnson trial vindicated Johnson. For all the blather in the Missoulian about "gang rapes," not a single charge has been filed nor has an investigation concluded anything of the sort occurred.
So what's the NCAA to do? Throw the book at UM for --- athletes scarfing down tailgate food (rumored to be one of the things the NCAA looked into). Should they throw the book at UM for time it took GK to repay of a bail loan made by another UM athlete's parents? Should the NCAA strip UM of games in which GK played after his tazer incident--games that Kemp wasn't really a factor in anyway.
There is no low hanging fruit from the investigations by UM, or the feds, for the NCAA to gather. It seems to be struggling to come up with conclusions of its own.