CPLZ,
If a player signs a NLI, there has to be a financial offer. However, a school can provide athletic aid without a signed NLI. After all, some colleges don't participate in the program. Even if a college does participate, there isn't any NCAA requirement (that I'm aware of) which mandates that every scholarship athlete sign an NLI.
I think most schools want an NLI for every player that gets countable aid. The effect of the agreement favors the college. And most players will find the attention associated with the signing agreeable.