Some of this surely isn't BB's fault but it still makes the company look bad when it can't be trusted to provide the promised pre-order incentive to customers. My suggestion would be for BB to secure as many exclsuinve steelbox packaging promos as possible & have the DLC codes sealed in them.
Because this method can be abused for codes that wouldn't equal sales it needs to be clearly printed on the steelbox packaging & the receipt that if the $5 pre-order can not be refunded if the steelbox is opened & the game itself will not be fully refunded if the sealed steelbox isn't also returned.
Also, you should try to score more impressive DLC like characters and/or levels not just costumes/weapons packs. They have more "value" & will have a much greater impact on increasing your total pre-orders.