It doesn't matter what level. Think of it this way: What percentage of coaches are former football players at any level? Let's say (very conservatively) 75% and the remaining 25% are drawn from the "general population". And let's say (again conservatively) that AAs make up 40% of football players at all levels. Theoretically, that should mean that, if they were represented proportionally, they would make up ~32% (0.75*0.4 + 0.25*0.11).
Now, do I actually think we should be running these calculations and determining the appropriate proportion down to the third decimal place? Of course not. But I think it's pretty clear that they're underrepresented, and that raises questions as to why, exactly.
And looked at another way, the discrepancy between 68% (AA NFL players) and 16% (coaches) is, in fact, the problem. Surely you're not so naive to think that the NFL is doing all this out of the goodness of their collective hearts. Goodell and the owners recognize that allowing this type of discrepancy to persist hurts relationships with the players -- we all have a good laugh every couple years when some player pops off about how they're "slaves", and I agree those types of comments are ridiculous coming from millionaires, but the anger among players is real.
Far more importantly, it doesn't play well to an increasingly diverse viewing public. The NFL is on top now, but don't think for a second they're sitting back and assuming that will continue forever. Apart from concussions, one threat to the NFL's dominance is if they're seen as overly stodgy and behind the times. Having a bunch of old white guys leading teams made up of mostly AAs is, to put it bluntly, a bad look.
So whether the RR works or not, I seriously doubt the NFL is going to throw its hands up and say, "Oh well, we tried. Now let's just sit back and wait for things to change on their own."