It is very difficult to "start a server, when its empty". Most of all, it is a balancing issue in the region of less than 10 players. If one player leaves the game is over.
In this situation (server frequency 10 players) i propose perhaps we could norm the capturing speed of flags to 100% to the team strength rather than count per person. Atm. it is impossible to win a rush mode or conquest of 4 vs 5 and I suppose all others, except team deathmatch.
Alternatively we could force even numbers of assault class soldiers or even players.
Have a nice weekend