Splitting the server up is a real stuff idea. We can barely get one admin to want to put the time into building up the player count (its very tedious). I can't imagine someone wanting to put time in trying to start up a empty server or playing it, when there is one they can join after some trying right on the top of the list.
I'm with the 'don't fix what isn't broke' camp. Not only will you make running the server logistically harder for admins, if a warden isn't creative, this won't make him change.