So the solution is to remove the 'war winning' aspect which clearly causes problems in the game if people are gamey enough to destroy the game balance just for this.
Base takes could be made attractive simply through awarding perks and score to people who participate to the fight in the area. And to avoid gaming the game by all hording to one side, make perk/point rewards directly related to the numbers. If you're in a 10:1 horde in the sector when base take happens you get awarded 1 perkie, if you're 1:10 under dog when base take happens, award 100 perkies. Only dumb people would horde after that as balance would be more beneficial whatever way the base take would happen.
As an idea bases could be tied to certain planetypes (i.e. own base A1, get use of Spit16, Pony D...) for example, which would make fighting over strategic bases interesting even without the 'war winning' aspect. Just like losing your last port rips you off of a CV capability.
One, you can't do away with the "win the warz" as that is what drives most of the battles. Sure you get some furballs/spawncamps that pop up and have nothing to do with the "war" is is nothing but battle for the sake of battle. For the most part, if there is no war, the arenas would soon look like WWI arena.
Incentive by perks.... naw I don't think so. The reason the "win the warz" guys race to grab base after base is because that is what the game is ..... to them any way. The whole object of this game is to capture as many bases as it takes to WIN DA WARZ! So perks are unimportant... ask the P38 drivers that lawn darted all along the landscape
So earning less perks isn't going to do a thing. Upping the score and/or perks for defending out number might help get more defenders.
Tying planes to bases is like forcing players into something. HTC has never been into forcing anyone to do anything. Again these players rarely take bases due to strategic reasons. More often than not it's the next undefended base that no body is watching.
The problem is the horde as I see it. If the horde was split up there would be a longer front for battles to happen on. As it is now you have the Bish horde hitting the Knits and the Knit horde hitting the Rooks and the rook horde hitting the Bish..... never the hordes shall meet! So you either ride with the horde or fight against it.
So in the "not forcing anyone to do anything" or the "take anything away form players" mode what things can be done to create more fights? Sure some like Panos, Rocky, TonyJoey love hordes as they think fighting is just circling over a group of planes to dive in pick one and blow out the other side to only turn back once they have their perch back. For for most of the "fighter" types flying with the horde your spending all your time trying to beat your teammates to the kill or fighting against the horde your spending all your time dodging HOs taking snap shots to try and get a kill, neither can really be called "fighting".
Tying the requirements for the base capture to the number of attackers would still allow hordes to attack, but being harder to capture would give defenders more time to fight back. Small fast attacks wouldn't have to work as hard to capture bases. This would encourage small attack groups but still allow the horde should players still want that kind of mission. While it still allows the hordes Im thinking that as I believe todays players are more interested in grabbing as many bases as they can to win da warz that you would see the groups split up and attack 2-3 base at the same time looking to do quick easy grabs over the long drawn out horde attack. Picture 2 or 3 new attacks coming along every 20-30 minutes or so all over the map. Quick attack, grab the base or not, move on to a new attack. There would be short quick fights all over the map.