1. Bioware needs to enable free transfers to lower pop servers for the first month and heavily monitor population usage. Prevent too many empire from transferring to one server and such that already have imbalances.
2. Lower the cap for characters per account on a server. If you've already made a character on a server above like say 10, you can make more if the server is full, but new people can't make another char on that server.
3. Move whole guilds and adversaries/allies to another server and everyone with it in order to balance better, instead of just making a billion servers. Frequently the caps for the servers are too low, like 200+ people in one of two instances of Corescant on Veela? That's it? Lets get 500+ up in here.