When a person first logs in their character, automatically place them on the least populated continent instead of whatever the last continent they happened to be on. Maybe even drop them off at a random spawn point their factions owns. To mitigate the "annoyed" factor for people determined to play on Indar no matter what, give them one free deploy option to their continent's warp gate. There's no guarantee this would work to spread the populations out in the long run, but it might encourage some people to stick around these new continents and play there for other reasons than to cap empty bases. If after making these changes people still flock to Indar then its probably time to merge servers.
