To be fair, the RP community asked for official RP servers during ARR's development, and Yoshi-P even said he liked the idea. Then beta hit...and silence. Without official servers Balmung remained the primary unofficial RP server, and after a vote on it, Gilgamesh became the non-Legacy unofficial RP server. When Balmung and Greg were locked, the RP community picked Mateus next.

RP can be tricky. In lot of cases characters, players and RP style just isn't compatible. Of course RPers are going to flock toward the highest concentration of available RPers.