They allowed one faction to transfer to a new realm once back in Vanilla/TBC. It was so successful they didn’t do it again. (/sarcasm)
They have never attempted transfers coupled with faction ratio queues. IIRC, when they offered such a thing to MalGanis horde, CRBGs were already a thing and the horde saw little point to moving. There was no incentive to move.
Yeah, that will definitely make people choose those servers. This idea has been floated about for years and bashed every single time.
10% is much too large when we are talking about servers the size we have. Should be more like 3%.
10% would have been fine for vanilla server sizes.
The other thing players don’t account for is the number of players who take a break from playing then come back. Their numbers would skew ratios.
Plus not every player is on the same time as other players, so the active faction balance fluctuates over 24-hours.
If players actually wanted “balanced” realms, there would be more “balanced” realms. You are more likely to see “balanced” PvE realms. PvP realms tend to be dominated by one side or the other.
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Well, hopefully they are still aiming for vanilla-like server caps by phase 2. Maybe 3% is good during transfer periods and then opening to 10% in phase 2 to keep the problem from resurfacing.
Full disclosure:
Faction ratio queues would not forbid creation of characters, just actual login of a character.
If “people” actually wanted to be healthy there would be less Big Macs sold and less obesity. Sometimes what people desire is not what is best for people.
Putting guard rails on faction ratios would help keep servers healthy, and just because some players prefer to be on a stacked team is not justification to allow it.
So? The ratio would still need to be reasonable during all periods.
And the faction queue would guide and regulate that. 
The ratio queue would not be going away and would be persistent throughout all periods. The game should not suffer due to dry/drought periods of another game or other external factors.