The maximum amount of players allowed on any map at one time is 16. Not saying you're wrong about it being "empty", everyone is entitled to their opinions on that, but there is a reason you don't see more people in the Tower at once.
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The reason I don't see more people in the tower is that it's limited to an absurdly low amount, in ALL areas. Why was the limit so low? Don't tell me servers. You don't need Blizzard servers to handle a decent amount of people in one area. I want to see more people around, PERIOD.