A football club and what they produce (entertaining football) is a measurable thing. If watching the city was entertaining, with great performances, attacking football, challenging matches etc then yes it would be packed - like it was in the Malky / Warnock promotion season and the premier league seasons.
But in reality watching the city play - has not been in the least bit entertaining over the last decade and that is reflected in the attendances. In fact Im surprised it has been as high as it has been - considering what has been on offer to watch.