Balmung was my 1.0 server. Everyone in my old FC rolled new characters elsewhere, so I had no reason to stick around. I personally got weirded out by people RPing in public places constantly while I was trying to do mundane story things. So I paid the transfer fee and yoinked my Legacy Lala over to Lamia where my 2.0 main lived when the population problems really got serious.

Free transfers off the data center are the only solution. There are 1.0 players who feel like they shouldn't have to move, especially if it costs money - it's not their fault their old server got invaded by RPers. There are individuals who don't want to move unless their entire FC movies.

Make a new server on Primal or re-designate the lowest population server existing as the official RP server. Offer free transfers off Balmung and Gilgamesh to select servers (Lamia is also high population and doesn't need anyone transferring over en masse.)