Those aren't real queues. They're just there to prevent the login server getting overloaded/help prevent a DDOS.
If the cap is 21,000 - why not make it a hard stop. Rather than allow players to repeatedly try to connect and then crash the queue for everyone, wouldn't it make sense that if the queue is at or approaching 21,000 no one can attempt to connect until the queue dies down a little?
I suppose as was said earlier, simple solutions like this probably aren't as simple as we think... :shrug:
Things were better on behemoth. I didn't experience many 2002 errors compared to the last few nights, some progress.