I think you should be able to start a game when its just you in the server, for two reasons:
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For those good guys who actually try to start a server up, they are being forced to just sit in the lobby for however long it takes for others to join.
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There is currently no way to simply check out a map. So people who have friends though, they can actually get into a server and check the map out, see how different spots work for different tactics, etc.
The fact that all the servers are full half the time (but there are tons of empty servers) creates an unnecessary queue. I think more people would be willing to get a server running if they could at least round around in the map while waiting for others to join.