Not surprised at all, and I actually think they are making the right call here.
First, Rutgers is certainly expecting to turn things around and for demand for season tickets and parking to increase again. They have a policy of 1 parking pass per 4 tickets, as a way of making parking available to the largest number of season ticket holders. If they start making exceptions in down years, allowing 2 parking passes per 4 tickets, when demand goes back up they'll have difficulty pulling those extra parking passes away from those who were buying them. I can hear complaints now, "I bought 2 parking passes in 2019, so I should be grandfathered in and allowed to buy 2 passes forever." By keeping the policy in place, the avoid the problems that will inevitably occur if the suspended the policy and then re-instituted it.
Second, premium parking passes are a perk for season ticket holders. If you have a group of 4 season ticket holders, you get the perk of 1 parking pass. If you have more friends who join you and want a season parking pass, then instead of them buying single game tickets, they should get together to split season ticket and be eligible for the perk of another parking pass. If Rutgers starts selling season parking passes to people who don't have season tickets, you will have groups of people buying parking passes without buying game tickets. The parking lots will be filled with people there just to tailgate, without every buying a ticket to get into the stadium.