What would be handy is if retainers where places randomly throughout the three city states, for example a player could send their retainer to the Masons ward but not choose an actual city, the server would determine the best place based on retainer population and it would solve the issue of everyone congregating in one spot and clogging up one cities wards in particular.
Take a look at the post below and feel free to pass it on to the dev team lol <3
http://forum.square-enix.com/ffxiv/t...ard-congestion.