I'll take the word of @fybush who does engineering filings, station appraisals, and brokerage for a living. Looking at the contour map I bet it comes close to the $1 per head mark, which would mean 1.1 million in the contour. Several million may not have been the right term, but the valuation looks right.K223CW should in no way be reaching "several million people" reliably based on its currently licensed specs.
That said, it is possible (maybe) that it could apply for an upgrade given 1540's specs.