There's a few significant dynamics at play here.
1. Rutgers has not had the history of donations that nearly every other school of its size and like have had. Many of those donations are typically for scholarships and endowment funds that need to be built up over the years before they start distributing scholarships. Thats why at Rutgers you're much much more likely to get a scholarship for a specific program (Honors college, engineering program, etc.) because those programs have specific scholarship funds that have been established. You can't forget that Rutgers Univ NB used to actually be 5 different colleges, each having their own scholarships but no headline scholarships for general admission into Rutgers University. That only started being built up less than 10 years ago. And our annual giving/donations only become respectable about 7 years ago (still near or at the bottom of the B1G though)
2. Rutgers accepts significantly fewer out of state students than its peers in the B1G conference. The tution delta is significant (for the same product and services) and its essentially an additional profit margin for schools who bring out of staters in at a high rate. Penn St is notorious for this. Offering scholarships to a few bright students accomplishes many goals, including making your school more desirable to the scholarship earning student's classmates. Rutgers needs to simply accept more out of state students just to increase revenue.
3. State aid to Rutgers is an absolute disgrace. Been steeply declining for decades. We are the highest taxed state in the US and we have some of the best K-12 public schools. But essentially RU (or just NJ universities as a whole) hasn't had the advocate in Trenton its needed over the many many years.
.... to sum this up. Rutgers donors have been increasing their giving and more scholarships will be available in the future. Rutgers SHOULD increase their revenue by accepting a higher % of out of state students (but this makes it harder for NJ students to obtain admission). And lastly, state financial aid is likely to continue to decline and further putting NJ colleges in a survive on your own setting.