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Between the levels 9-20, there are only 14 F2P quests. None of them level 19-20.
Between 12-18, there are 6 F2P quests.
The 1 or 2 adventure packs that you could earn with favor might only add 3-4 more quests each. Even if you farm for favor for months, you might only get maybe 3 or 4 free adventure packs adding ~12 quests.
This game is actually good enough to consider paying for VIP if you really like it. But if you don't expect to pay a dime, don't expect to play for long.