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You really can't tell what other people are doing across several servers who are queued for the same GC. There is a tendency to AFK while in a queue for almost any instance, that explain why there are players missing from the start of a match. Players might also be in the middle of a craft and intentionally withdraw or allow the clock to run down, in cut scenes, or may have to afk just because of an emergency, door, food etc. Just because queues aren't popping for you right away, you can't say that the system is broken.
I do understand how the "withdraw" system works. It was actually included in a hotfix at the launch of Frontlines (because originally 72 people had to accept before a match would actually go through which was aggravating). I welcome the change, however the major reason I am saying they aren't functioning correctly is: