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I have never seen any World Cup games in person, but I hope these are the lowest attendance ever. Not only are they spread out over a large space, they are not laying out guidelines that they could.
in a market in which entertainment is the most developed in the world, so we have to apply market rates
if you were to sell tickets at the price which is too low, these tickets will be resold at a much higher price
These games are world market. The US could easily host them (I think) in one or two cities that are close to each other. They could also just, maybe, not host them.