The problem is that the servers can't be merged as certainly Nebraska and possibly Kaiser will hit the server capacity at peak event times.
That being said, the reason for the low player turn out, especially at off peak times, is the rather recent crop of games being released for the holiday season. Most people that play NF also play shooters (offline or online) or RPGs (again offline or online).
In two days though, the Christmas/Snowy Holiday Event is going to start up and you can expect the number of people online to increase.
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