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It is possible to transfer existing characters to other servers, there are periods when SE adds new servers or offers server migration to even out the population. But this is very limited and usually specific servers for migration, since they do not want to add more to an over populated server.
And unless they change it, all new characters created are defaulted to the server your first character is on. Since creating mules do not require World Passes, I just make the new character and they get set to that world automatically.
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