In my corner of the world at least, there are some scholarships granted by government entities (e. g. for low income students or mobility scholarship programmes). In that case, the money comes from taxes, meaning when the administration decides their budget plan (usually right after an election), they agree to set aside x% of tax income for education, and y% of that sum is dedicated to the scholarship fund (and z% to faculty salaries etc. pp.). That amount might be adjusted for inflation at some point, and it usually gets renegotiated when the government changes.
Others have explained how private scholarships work.
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