Lets put some reality to this conversation.
1) 25,000 is not bad for a FCS game, the playoff championship game at best may not excede this by much, and many years doesn't even make 25,000.
2) Birmingham SUCKS. now let me explain. In marketing, you can't just deal with reality, you gotta deal with what people think. Birminngham could be the greatest City in the US of A, but if people think it sucks, then that is what you gotta deal with. If you ask the average person in the SWAC area to start naming Cities they would like to visit for a weekend, Birmingham would not make the top 10. Most have a negative opinion of Birmingham. FACE FACTS, BIRMINGHAM IS NOT A TOURIST CITY.
3) for a SWAC game, you are not going to get over 15,000 true pure football fans. The rest will be there for the EVENT, like homecoming, bayou Classic, Magic City Classic, State Fair classic, etc.
4) Once something gets to event status, you will have lots of people that come to the event that don't come to the game. At least 1/3 of the people I know that go to the "Bayou Classic" don't actually go to the game.
5) The heart of the SWAC is LA and Miss. The farther you get away (geographically) from there, the tougher the sell. In addition, you eliminate the "1 day trip", if it is not a 1 day trip, then it better be an "EVENT", not just a football game.
6) Black folks don't like sitting outside in the cold.
7) Casinos make a big difference.
These things are reality.