To me, it sounds like your RP concept is plenty viable. If you're struggling with membership numbers, that may be due to a couple of other unfortunate factors.
It can be difficult to get FCs off the ground. There are so many FCs out there, but only so many RPers on Balmung to occupy them. Since every RPer can only join one FC (per character), it means that they must find your FC more attractive than every other FC on Balmung. On top of this, the server is very hard to get into, requiring anyone new to pay $18 for a transfer. The result is that many RPers are already in a FC that suits them, and Balmung's overpopulation prevents new members from joining the fold.
Don't be discouraged, however! Have you considered having a complimentary Linkshell for your FC that interested parties can join? This would completely circumvent the issues listed above, and allow people who are really interested in your concept to join in, even if they already belong to a FC. Based on my own experience (of someone who has run a FC and LS like this for 2+ years), LS-only members may even end up enjoying your community so much that they join the FC anyway.
Also, you could consider running some public events, like an IC scavenger hunt. Posting about it on the RPC forums, adding it to the RPC calendar, adding it to the Balmung iCal, and also posting it on Tumblr would help get the word out that you're running an event that's open to all. (Apologies if you've already tried this, but it can be a good way to meet people!)
You don't have to take these suggestions, of course. Just trying to help based on what I've learned from my own experiences. Best of luck!
It can be difficult to get FCs off the ground. There are so many FCs out there, but only so many RPers on Balmung to occupy them. Since every RPer can only join one FC (per character), it means that they must find your FC more attractive than every other FC on Balmung. On top of this, the server is very hard to get into, requiring anyone new to pay $18 for a transfer. The result is that many RPers are already in a FC that suits them, and Balmung's overpopulation prevents new members from joining the fold.
Don't be discouraged, however! Have you considered having a complimentary Linkshell for your FC that interested parties can join? This would completely circumvent the issues listed above, and allow people who are really interested in your concept to join in, even if they already belong to a FC. Based on my own experience (of someone who has run a FC and LS like this for 2+ years), LS-only members may even end up enjoying your community so much that they join the FC anyway.
Also, you could consider running some public events, like an IC scavenger hunt. Posting about it on the RPC forums, adding it to the RPC calendar, adding it to the Balmung iCal, and also posting it on Tumblr would help get the word out that you're running an event that's open to all. (Apologies if you've already tried this, but it can be a good way to meet people!)
You don't have to take these suggestions, of course. Just trying to help based on what I've learned from my own experiences. Best of luck!