In New York, there is a Fan Advisory Council to offer suggestions to fix/improve racing. While this idea should apply to all states, since you are asking for ideas, here is suggestion #1 for the council.
Get rid of coupled entries. Here is a perfect example.
Tonight at Vernon Downs, the Kindergarten Classic for 2yo filly trotters has amassed a field of nine trotters to do battle. Nine horses makes a good field to wager on. Except this race going for more than $200,000 has only six wagering options. There are two coupled entries, the first entry comprising of three horses and the second entry having two horses. How exciting is this race to the bettor. Box the two entries in the Exacta and you have five of the nine horses in the race covered. Under the rules for Trifecta wagering, theoretically the winning ticket could comprise of the first, fourth, and sixth place finishers.
Gamblers want full fields to wager on, not to watch race. Racetracks want attractive races so gamblers will want to wager on them. Getting rid of coupled entries is a win-win. What is taking you so long in eliminating them, after all handle isn't high enough to pull off a wagering coup?
The time has come to put coupled entries into the scrap heap of outdated ideas.
News Item - Feuding in Michigan: Hazel Park is seeking to modify their racing application for 2014 race dates to reduce the number of racing days from 44 days to 10 days. The reason why? A dispute between track management and horsemen over proposed legislation to save racing. With racetracks and horsemen both hurting, you would think they would speak with a unified voice. But then again, this is racing.