They control the NCAA who would not promote a change on its own. It would have to come from the FBS membership.
Even if some, in the membership advance such a proposal, enough schools, from the G5 in particular, would oppose the move that its passage would be doomed.
ESPN owns the last 14 bowls created and they are not about to shut down any of them. Quite the contrary. It saved the Miami Beach bowl from floundered when it purchased it from the AAC.
And we the people bear as much responsibility as any other party. Last year, every bowl had at least 1.18M viewers.