I mean, aside from the pandemic season, the hockey team across the bay has sold out
every single game for 7 years running.
In the Evan Longoria glory years the Rays got up above 1.8M attendance 3 years running (2008-2010), ~23k / game, not great but not in the MLB basement either. It was their 2014-2019 nadir, where the only thing keeping them from being bottom by a mile every year was when the Marlins bottomed out after 2017. Look, I don't know the area as well as you and others here do, but clearly it's not impossible to build a sizable following and have a decent crowd atmosphere there. Would it be better in Tampa proper? Sure. Is it the
best city to put a team, if you look at all those lacking one? Probably not. But neither is it some sort of failure or boondoggle. The Rays aren't fated to be poorly-supported, they were just run by an owner who was happy to cynically collect revenue-sharing every year and sell tickets to away-team fans. Change the underlying dynamics and you probably change their support levels too.