Every row of seats you add around the arena costs slightly more to build than the previous row. The most expensive seats in the arena to build are the ones in the back. meanwhile, those seats bring in the least amount of revenue. Also, it's always best for ticket prices (for the team), if the supply is slightly less than the demand. You don't want to have 21000 seats, when the demand is only 20000.
That's why there won't be 21000 seats in the new arena.
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