ConfigureMatchmaker() builds two full queue sets. queuesConfigLo is used when online is low, queuesConfig when online is high; the switch is automatic via mm_lowOnlineLo/Hi (defaults 250/300). Both sets are pushed with MatchMaker_ReconfigureQueues(), the low-online set with a second argument true. Each game mode (arcade brackets, coop brackets, training, PvE, every brawl, sector, league, raid) is one table inserted into one or both sets. 

table.insert( queuesConfig, InstantiateQueueTemplate( arcadeQueueTemplate, 1, 15, 1, 15, 20, 24 ) )
-- ...
MatchMaker_ReconfigureQueues( queuesConfig )
-- low online queues
MatchMaker_ReconfigureQueues( queuesConfigLo, true )
-- Switch to low-online mode if online is below this value. (type: integer)
cvars.mm_lowOnlineLo = 250
-- Exit low-online mode if online is not less than this value. (type: integer)
cvars.mm_lowOnlineHi = 300
On a localhost with a handful of players you always run the low-online set. Tune that set first, and keep the thresholds (e.g. 250/300) so the server stays in low-online mode.
Additional Notes: 

Low-online set is what matters on a localhost.

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