The biggest problem was not adding more legacy servers when the legacy server transfers took place. Early last year servers were merged together based on a population count of active players. So when you give all those inactive players a free ticket into ARR you've got two server loads of people trying to cram on to one, plus any others who transferred in. Server splits are the only real way to get around the issue. Open up a few new legacy servers and allow free transfers from over populated servers to the new servers. This happened in the early days of XI.