At City, a tout for example could gain access to a bunch of season tickets, & make enough money from the biggest games, to pay for the ticket for the rest of the season. Thus creating empty seats at many of the lesser matches. Similarly people who live further away & can afford to buy season tickets, can do the same.
What is pretty clear, demonstrated by the increase in attendance since Maine Rd, is that City are capable of a continued rise on average, year in year out, especially if seat prices were made more affordable & are on target to eventually catch Bayern, Utd & everybody else, provided they remain successful & entertaining.
As it stands, we would still have empty seats, even if we had 100k fans trying to get in, because people have bought them & are not always using them.
i am guilty of that, but have been for the last 12 years