Sure, when it started out F2P twinking was more than doable, Starter Edition accounts were the majority, 24s were a minority of almost entirely scrubs, who could easily be beaten by a moderately skilled F2P or a premade of average players.
The switch back to 20-29 and addition of Veteran accounts though will have completely changed that. With free accounts flooding the bracket all the old pre-XP-lock 29 twink players can now get queues again, and veteran has opened the doors for all the abandoned 19 accounts to play for free at the cost of a single ding (I'm considering dusting off
my own 19s and taking them to 20). Many of these players are at the other end of the spectrum from the old 24s.
F2P is no longer something that many new players will want to be part of. The work you have to put into gearing up is no longer rewarded with being part of a large community who play together, regularly fielding full premades. The average player no longer has a place, because your friendly 10 man F2P premade is just going to end up being farmed.
You want to rebuild an F2P community? You're not going to do it by gathering the tiny number of elite F2P players who can contribute when facing 29s and vets. Your only hope is to cater to the majority, and build a community that's open, but to do that you'll have to forget about the entry requirement of BiS twink gearing, and without that gear, forget about playing anything other than wargames.
To get enough people to play wargames you'll have to get organised, but I really can't see that happening when so much of the F2P community is still in high school, and not interested in any kind of additional work or responsibility, on top of all the tedious, pointless **** they're given to do there. Like most gamers they'll take the easiest option that's available to them, and right now that is buying an upgrade and playing as vet.