Well, some events at WOG 2018 weren't sold out by any means, it's not like Japan would suffer from the same fate but it's still a long journey for majority of the world. You can't travel to Japan by land so if the audience is sold out let's say below 80% that would still be a good result all things considered. You're not making profit from hosting the Games itself, it's more of a publicity feature. Maybe it works in a country which is a general sporting powerhouse like USA but I bet LA could still lose money in 2028 as well.