While I realize it's a bit chicken/egg, the Rays haven't topped 19,000 since 2011, with quite a few sub-15,000 seasons, even not counting COVID and the loss of the stadium. Even the Phillies can't draw 25,000 when they aren't good, and there's usually a few thousand no-shows/empty seats when the place is ostensibly sold out. However nice the new ballpark is it just can't offer that ideal summer baseball experience, nor the fact that so much of the region's fan base still roots for other teams.
Hopefully it does not skew towards overpriced club/luxury, but I'm sure the deliberate scarcity is meant to have that effect either way.