I think that the VIP lounge should be upgraded with a GTN terminal, Cargo Bay access and mailbox. this should help reduce the number of people at the GTN terminals on the lower level. i think 2 GTN terminals, 2 cargo bays and 1 mailbox should be enough.
i think this will actually give incentive for people to go to the VIP lounge (which is always deserted) and reducing the crowding on the lower level.