Yeah, for a player to sign they have to have an offer and be at 'high' or 'very high" interest.
Lets say UCLA hasn't offered a scholly but is at 'very high' interest, and Sacramento State has offered a scholly but is only at 'moderate' interest. The recruit wouldn't sign. Sac State would need to increase interest or UCLA would need to offer for the recruit to sign.
Also, sometimes you'll see a team fill their openings and still have an offer out there. In this case a very high scholarship offer wouldn't be able to go through.