As someone who has attempted to be in the shoes of the bounty hunters, both on Anaxes and on Felucia, plain and simple, people don't want to roleplay with them. Also some jobs that they have, such as the IG unit, are KOS and will have absolutely no chance without any extras.
The ladder was placed so that when people refuse to roleplay with the Bounty Hunters because of their personal opinion that "they should be removed", they still have a way of doing completing their roleplay. This is also useful for event jobs, when there's only 2 ways into the base without a Game Master opening up the rayshield for them or just teleporting them into the base.
If there is something that makes more sense for a way they can actually be a viable part of the server without having to rely on other players who at the current point won't engage in any roleplay other than "YOU BOUNTY HUNTER. YOU BAD. ME SHOOT.", we'd be open to that.