The behavior you describe *might* be normal if 90% of you users sign-in while only one server is running. In this case the users stick to the WAS server due to session affinity maintained by the plugin. However I think that is quite unlikely.
Als Glen pointed out you should check the plugin-cfg.xml for you HTTP servers. Especially the following properties might be interesting:
- LoadBalanceWeight
- IgnoreAffinityRequests
- LoadBalance
Depending on your applications session usage you might consider changing the later two (is assume that the weight is the same for all?). Especially the IgnoreAffinityRequests you should take a look at as this defaults to "true" in certain releases what is not a good choice if you have many session affinity related requests. In this case you can try changing the value to false. See http://www-01.ibm.com/support/docview.wss?uid=swg21318463 for more information on recommended plugin-cfg.xml settings and some background information.
Please see also https://developer.ibm.com/answers/questions/246181/why-does-the-websphere-plugin-not-load-balance-tra/ as a good reference.