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cliveo
Proper answer is more mundane,
According to the Tottenham Hotspur Supporters Trust, who fielded a LOT of questions about this, it was a combination of factors. These included the club being overly cautious in the first match at “full capacity” with regards to sight lines and buffers between away fans, a few people just not showing up, and due to the way the club calculates attendance numbers (as in only counting fans through the turnstiles rather then tickets sold)