During the Iowa/Illinois game yesterday, after a change of possession, Illinois would routinely huddle near its sideline. 13 men would be in the huddle. Once the huddle broke, 2 men would go to the sideline and the other 11 would assume their positions either on or of the LOS. Does NCAA permit more than 11 men in the huddle?

NCAA doesn't seem to have a problem with this kind on conference unless A moves out of this huddle and quickly snaps the ball. Nebraska was becoming very good at using large huddles and running certain players onto the field and lining up quickly to snap the ball. I believe the officials were told to delay the RFP until the offense had declared which 11 players were in the game.

Delay the RFP and give them even more time to talk?

I'm just telling you what the Big 12 was doing. They strictly enforce the end of the timeouts so there is no extra time in the huddle. They just don't let the offense snap the ball quickly.