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It's one of, if not THE most populated NA server.
Meaning in periods of high congestion you cannot create a new character. You can either wait until the wee hours of the morning (I know this at least works for Hyperion) or you may have to wait until the moments after maintenance downtime as this forces all players offline.
If you were to pay the transfer fee you could transfer without waiting, as character transfers are not restricted.
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>.< i will get in someday
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As King said, transferring to a new server usually ignores the character creation restriction (as in, a paid server transfer for your existing character, not simply creating a new character on a new server)... but again it might be the time of day you are trying to do so. Another alternative to Balmung is I noticed in your other thread you said your FC has a lot of EU players, hence maybe a EU server would be another choice? (Balmung is on the NA server group). I'm not too familiar with the EU servers, although I understand Ragnarok is probably the most largest EU server, and thus probably is just as congested (read: restricted to new character creation) as Balmung. But that is still an alternative.
Either way, don't despair! I hope you and your FC family finally find a server to call home, no matter where that server is. The main thing is that you stick together and by conquering the mountain that is getting onto the server that's right for you, you're pretty much ready to conquer any challenges the game throws at you! :D
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my 3 eu friends is the reason i'm on the eu server but i am looking for a good na server or w/e server that would be good to start a RP FC on. cause i'm not good at translating english to japanese XD