The game gives you the freedom to do what you like. Yes, absolutely. However, the only place the game rewards players is for PVE trophy movement...basically, if you do something that changes the BGS you get a reward.
You run a mission...you get a reward.
You play in a CG....you get a reward.
You bounty hunt...you get a reward.
Players are no more, nor less than an NPC in any of these calculations...the game even recognized players as NPC targets for mission completion....but that is the extent of any rewards for active PvP.
And that would be all that would be allowed in a game where the modes have to have equality. Any time you increase the rewards in favor of a play style between the modes...it brings more importance to the rewarded mode. Although this might or might not matter...the devs have clearly stated that modes are here to stay and that there will be no difference between them.
I think it's a given that players are much much harder to kill than NPCs. A bounty on a player should be a lot more than for an NPC. The risk is greater. So should be the reward.
I think that this would achieve several things. It would encourage PvP, reward it fairly, appease the Open only players, and have zero effect on the background simulation, so would not affect anyone else in any other mode, other than them knowing that someone else might be getting rewarded for doing something that they would prefer not to do themselves.
Allowing players to place bounties on each other, would help create emergent gameplay to some degree, and could also facilitate the suggestion in the ED blurb that each player that you meet could be your greatest ally, or your worst enemy...
Unless I'm missing something, and please tell me if I am, I'm not playing that long so it's entirely possible, but I can't se how such an inclusion would make any difference to players of the other modes. The mechanic would be there for them too, except they don't have the player tgts to complete the bounties.
I think it shouldn't be difficult for a system which recognised players and NPCs differently with regard to rewards.