I see two problems.
One if that the Klingon faction is underpopulated. They've taken some heavy losses, sure, and need some love from developers beyond what we're seeing in S2 but I'm sure one catch 22 is that to develop the content they need to retain players, they need more players.
On the other hand, you have Klingon players totally dissatisfied with the game who see their role as entirely to play a Klingon, making any Federation content moot for them. "I am a Klingon" is their mantra. They have an aversion to playing the more developed and polished faction and so this tends to lead to an unconstructive and embittered atmosphere.
I think the solution is to cut through the idea of faction identification and make everyone united as an STO player. We rise together and we fall together. Klingon frustration SHOULD BE everyone's frustration but it's hard to relate when you're invested in a Federation captain primarily. Meanwhile, I think camping out on the Klingon side and grumbling rather than rolling a Federation alt is needlessly divisive and leads to an unfair portrait of the game.
Playing one faction predominantly is not and should not be the whole game and it's counter-productive for the community, for allocation of development assets and for the player's satisfaction in general.
This is why I think we need incentives that require alts of both factions. Obviously, account-wide accolades are a ways out from a tech standpoint -- and that would be the logical way to make this happen.
So here's the idea:
I think we need a form of account bound item (ships and BOs) that encourage people to play both sides. And there are ways to do this so that it requires both sides. For example, say you have a Husnock ship that the Federation can get. And say you have Husnock weapons that will only fit in the Husnock ship that only Klingons can get. Suddenly, you have something that requires progression from a single player on both sides of the game.
In terms of account-binding, this may be difficult but the counter I can see is that you disable these items from conventional mail systems but introduce a Ferengi black market NPC who can transfer items between alts. Simply make the items unable to be mailed, traded or auctioned but able to be sent through the alternate channel between alts.
There are a variety of ways you can take this. Crafted items at Memory Alpha that require a Klingon-side drop. Bridge Officers who can be purchased with a combination of currency/marks that drop on each side.
Make the bait so tempting, people feel compelled to play both sides.
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