I feel like I've been in this thread too much by now but your post is intriguing so I'll dive in once more. From what I know, most of the kids who go to the USTA academies pay a fairly hefty fee to go there so while USTA is paying to create the academies they also are getting money back. But I'm not sure of this. Maybe you know?
If I understand the arrangement you're proposing USTA would pay for a kid to go to college and play for that school rather than have the school giving the player a scholarship in exchange for prioritizing US players over foreign ones, which I assume means playing Americans even if there are better foreign players available.
As a college coach, why would I want that arrangement? If I'm looking to win matches, qualify for national championships, the kinds of things that will help me keep my job and maybe get a better job, I want to play the best players I can. And if USTA is paying for my players it will become another "supervisor," i.e. to keep my job I not only have to keep my AD happy, additionally, to keep my flow of players coming I need to keep USTA happy which probably means they're going to want to oversee what I do in terms of practices, overall training, and match strategies. It doesn't appeal to me but maybe there are people who'd want it. But I'm betting not many.
On USTA's end you need to remember that developing American players, getting American winners at Grand Slam events, etc. is not the primary concern. Maximizing revenue is. As long as TV ratings are bringing in good money and sponsors, as long as the numbers of recreational players is growing and many of those players are taking lessons from USTA certified instructors, playing in USTA leagues and tournaments and so on USTA is happy.
If TV ratings were dropping badly because Americans are not getting into the late rounds then that would be a concern. But there's no evidence of that happening. Tennis fans seem to want to see Nadal, Djokovic, Federer etc. in the semis and finals. Tennis fans seem to respond to players as individuals rather than as citizens. An American champion may or may not ad interest, viewers, and revenue.
And I think all of this applies to the NCAA and USATF, the latter of whom mostly needs to make Nike happy and to look for other ways to market the high level of the sport in hopes of more viewers and sponsor's revenue. As long as we have enough potential medal winners to attract sponsors I think USATF isn't going to be interested in making big changes and I cannot imagine they'd be interested is spending money on paying for athletes' college fees to prioritize development of US athletes when that happens anyway with the schools footing the bills. I will also say that I believe the presence of really good foreign competitors in the NCAA actually does more to develop Americans in that sport than it does to inhibit that, but that's just an opinion.