You are the one that brought the "representative" issue up. A school employee's, as Sandusky was in 1998, conduct within the facility is obviously subject to the school's administrative control. If Sandusky would take a day off, come into the office, and do something improper, just because he wasn't on the clock would not prevent the school from regulating that.
That is the crux of the administrative control issue.
The reason I mentioned which capacity he was acting in at the time of the abuse was because we were discussing the NCAA vacating the football team's wins from 1998 onward, based on the University's response to the 1998 report.
His actions, disgusting as they were, were not conducted as a football coach. He was a Second Mile mentor, in his official capacity with a Second Mile youth, who happened to have access to Lasch Building because he also happened to be a member of the PSU football staff. If he hadn't taken the boy there, they could have showered together at White Building, IM Building, or Rec Hall.
The "institutional control" aspect would come into play if Penn State officials failed to keep the football program in check in 1998. That has never been suggested by anyone, with the possible exception of your hints that you have inside information about additional contacts with LE. Freeh admitted that the University cooperated fully with the 1998 investigation, and there was no evidence that they attempted to influence the outcome, a feeling that was echoed by Schreffler. And while Sandusky's actions off-duty would absolutely be subject to discipline through the University system, at the conclusion of the investigation,
there was no determination that he had broken any laws or any University policies. Again, hindsight makes it seem obvious that they should have restricted his access at that time, but at that time it was a misunderstanding that had been handled by LE and DPW and was behind them, as I believe Schultz commented.
And to return to your earlier comparison with Bobby Bowden and FSU, think of the purpose of vacating those Seminole wins. The team played and won those games with players who were ineligible due to academic fraud. Since the players were not eligible to play, vacating those wins is an appropriate consequence, since the team gained a unfair competitive advantage by using those players.
Penn State's wins from 1998-2001 were played within the rules of athletic competition, with legally fielded teams, and nothing gave them an unfair advantage just because Spanier didn't update the trustees on Sandusky's investigation and subsequent clearance. Vacating those victories is arbitrary and capricious, and it diminishes the relevance of that sanction.