First off they already said the transfers won't all be free. Only to specific servers. All others will be paid transfers.
Second, transfer where ever you want. It just shuffles people around. It doesn't make more players. The game sold 2.4 million copies, but there's supposedly only 1.3 million accounts, with 400k leaving just in the last quarter. Transfers just move around a dying population, they don't add new population. This game needs more players. Transfers won't help that.