Whether or not to spend their money on a product and experience they might not place that kind of value on. I believe Utah's success and P12 prestige and having a quality schedule that they can compete with as well has affected the excitement level of BYU.
For years fans have been complaining about the bench seating, I understand it's a cost factor but if you're not selling the tickets like you used to maybe you need to make the in-game experience better those bench seats need to go.