I Would Suggest u looking in to some other servers with a big player base , Look what there shops look like , Xp Rate Etc , Teleport system and such else and their starting items ,Cause they obvs have done something right to have the big player base they currently own .
Im not saying u should copy them but maybe something like them .
For example Battle-scape , Has easy gaing normal items but gaing chaotics via dung is really hard and annoying , I Think u should rewamp the server tottaly , And make some trade zones where they can trade items , For example i remember exoria had a ::trade command where people traded their items there .