So, you have too many of 1 faction. How about staggering what faction people can choose on a server. You have 450 Horde and 150 Alliance on a server. Only one Horde toon can be added for every second Alliance toon. A staggering concept but it could work. Bank toons can be restricted to lvl 10.
That’s when ppl just stop playing alts and play 1 or 2 chars 
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Or even worse, they create 8 alliance chars and keep them lvl 1-x (w/e lvl the game see’s it as a valid char) and then just play 4 horde chars.
I don’t think this idea would work very well.
Will just result in everyone having unplayed alliance chars.
Even a locked mega-realm creates drama. Imagine what storm would be when the game would block you from creating a character you want just because some artifical faction balance…
The only balance there can be is using warmode. You have only PvE realms but you can enable warmode which moves you to PvP layer - and bonus rule - you can’t enable warmode if not enough players from opposite faction has warmode on.
And then generate events where given zone gives multiplicative honor for PvP in it, like today it’s Winterspring, tomorrow Azshara etc. Fixed 
PvP servers can’t really function with current state of the playerbase / meta
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They never functioned.
WPvP is a joke and a complete waste off time unless you like dying and getting corpse camped by some measly rogue with too much free time…
Or faction in majority would have friendly fire turned on essentially removing careless AoE and nearest hostile target spam macros used in resskills. Enabling wHvH will make people want to move to PvE realms or face constant ganking from their own faction.
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