oops hit submit before expanding on my list:
Turn the villain ATs off for heroes
While this will be a hated idea, it would have the desired result. Side effect could be more scrappers are created on heroes.
Maybe just until level 30 or 40, then they can switch.
Add a some of additional content (strike forces or mini arcs)
Villain side does not have as many city maps (a good thing), trial zones, or hazard zones.
Same with strike forces and story lines.
Can we give villains direct access to more hazard zones?
Delete Atlas Park.
It coddles new characters. It is better optimized for new character creation than new Mercy. It's not close to apples to apples.
How many enemy groups between Ms Liberty and the train? Mercy is different.
Does a player take an elevator to the train? Mercy is different.
Where does the train go? Mercy is different.
Atlas has access to Vanguard and Recluses victory. Mercy is different.
A rotating bump in the rewards department for red, yellow and blue. (low levels)
Maybe the easiest to impliment
I used to regularly broadcast "start up capital for new villains".
Maybe move or add the the Paragon City Tunnel to more relevant locations.