@dumbbuddy2
I've seen a few different ideas for this as well as one I had myself. I hope it's something Rare is at least considering.
I wouldn't want the sea dogs to step on the toes of the reapers, neither would I want the reapers to change. Some people see the reapers as a pvp faction, and while it can be used that way, pvp isn't necessary. It encourages pvp by broadcasting the ships location, providing a single turn in point, and reducing rep and emissary grade earned from nonstolen treasure, but weather it's desired or not, pvp is more likely and more rewarding. So I see it as a risk/reward faction that utilizes pvp.
I would make the sea dogs pure pvp. That would leave reapers as an alternative for different styles of play or even something to compliment the sea dogs. The emissary flag for the sea dogs would sit in the same spot as the offer alliance pennant to prevent any alliances, and allow the sea dogs emissary to be raised along with any of the other emissaries.
No treasure would be turned into the sea dogs except for the sea dog chest, which is only spawned by sinking a sea dog emissary. It's value would be determined by the amount of silver the crew had accumulated before sinking.
Silver would be earned through combat with other sea dog emissaries only. This would prevent sea dog crews from harassing every ship they see and only really be after other crews that also want to fight.
Balancing the sea dog emissary this way creates something that only rewards pvp combat. Treasure doesn't matter, so crews can't avoid pvp while still progressing like reapers can. You have to engage in combat with other sea dog emissaries and with the ultimate goal of sinking your opponent, or you gain nothing. Every sea dog will want kills, cannon hits, and sinks, and they will all naturally compete against each other to achieve this.
For the pvper, this gives a more reliable way of finding pvp, and I believe it will help with reducing the number of those encounters turning toxic. The crew doing voyages that wants to be left alone won't be a viable target for a sea dog and might be spared more often, while the people that do want to fight will be sending a clear message server wide. Reapers might still run, but you know any sea dog emissaries you see will fight.