Congestion doesn't factor in pre-patch lulls. It calculates congestion at peak times after a major patch. A majority of players don't play FFXIV every day of the year. As someone who is on Aether and does some crafting for the server. After a patch comes out, I can't keep stock of key foods/potions, until the patch lull hits, and that's fine and should be normal. Y'all are literally going 'we are in between patches, players stopped playing' no crap Shirlock. Have you played any other MMO, there are normal dips when content is no longer 'fresh.' SEs response to keep player engagement during this time is the mogtome event. Sure, it won't keep a chunk of the players in the game during downtimes, but it does help somewhat.
What would your solution to fix this normal life cycle of an MMO be?