Consider for a moment if instead of 10 VR levels they'd simply capped characters at 50, yet still allowed players to travel to the other factions to quest. If you think like the developers then the first thought that popped in to your head was...
"Why would anyone quest through the other factions if they weren't forced to?"
EXACTLY!!!!! Why do you want to force players to do something you already know they don't want to do? This is a game! It's meant to be fun, it's not a side job for extra Xmas money.
Also, Cadwell's was not even a part of the original plan, but because of the LONG delay in console launch and so many PC players having nothing to do, they added this feature to give players a way to continue questing with their main character. But not everyone hates questing, some of us love it and wish they had more; can't wait for Orsinium!
Now I'm forced to grind to get my last 3 levels.