I asked Rogean a long, long time ago when he was still posting on these boards (or the original foh board, as it was back then).
I suggested that they open a new server every few years and combine old servers. Keeps things fresh and there's always a new or newish server to play on but no one loses characters.
He responded with a post saying basically "that's the plan."
Didn't get implemented beyond green. Not sure anyone really knows why. If it was part of the Daybreak agreement I'd like to see some evidence beyond speculation. I suspect it was more about the effort/work it would require.
Either way, it didn't happen and it likely won't. Which is a shame.