“it is more probable than not”
Meaning we think they did, but can not prove anything.
No, it means they can’t prove it 100 percent. They can prove it in a civil case, but not in a criminal case. Some civil cases require “clear and convincing evidence” which is a higher standard than “preponderance of the evidence”, and this report probably means that the higher standard can’t be met. But there is no standard of proof for NFL investigations, and I am sure some people have been disciplined on evidence which was not 100 percent. What matters is whether the NFL would lose in court if it disciplined these people, and if it did get taken to court, the NFL would probably be subject to proof at the lowest standard, i.e., more likely than not.