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I think another problem is the shocking 'support' programme - only one other category was racing over the weekend (Indy Lights). For a season finale, and on one of classic road courses in the country, that's pretty poor.
Also, IMO IndyCar is just not popular enough to consistently bring crowds in, outside of the classics (Indy and Long Beach), and the 'event' weekends like Nashville and St Pete - which, funnily enough, have far more actual racing as well as all the off-track attractions.
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