Meaning of Crowd Level with restricted attendance

I assume that a crowd level of 10 happens when the park is at or near max capacity.

Today Universal is a 3. Is that the same # of people as a 3 in January? Or is it that the queue time is the same today as it was during a crowd level of 3 in January.

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Crowd levels are based on wait times, not the number of people in the park.