To be honest I dont think that have a viable way to balance PVP in a point that makers will be useless or less used. Everyone know how effective is using a maker to go as Kamikaze,
Its what it is!! This is the reality now.
If try to balance will destroy in someway the PVP. If remove death penalty from low lvls killing HL, HL will kill low lvls without any issues, if do the opposite low lvl will annoy HL, if you nerf MW from low lvl, HL can abuse of it, if the opposite, low lvl will abuse it.
The way to balance this is the two and only two. Removing skulls at all from the game or reduce frags limit.
Removing skulls: Makers will be killed like shit and less effective (but more likely a server will be closed by a "dominando")
Reducing frags limit: makers will get red skull faster so less usage per character per war/battle and more item/supply loss
I think since NON PVP is a reality, PVP should be treated as PVP, you will die, you will be frustrated with ppl abusing and killing you or you will be the boss and enslave the server and ppl that dont like it will need to fight against you.
ppl that get upset, frustrated, cry, etc. because they got abused or killed will simple play NON PVP.
Or, keep PVP the way it is and let ppl kill themselves xD
The punishment for PVP is there, frag limits, red skulls.
"Im lvl 700 and its really annoying makers killing me" - Go to NON PVP or get a team and kill them.
"Im lvl 300 and lvl 700 are power abusing me" - go to NON PVP or get a team and kill him.
Or betray your team like some do to have some peace and keep playing on a PVP server.
Any way to try to balance PVP will destroy it.
if you try to separate low lvls from HLs, soon a team win a war they will rush lvl and will be kinda impossible to take over if your team have lower level average.