I think the size of the BAF is somewhat overstated, too. Sure there's a bunch of names on the roster, but I think there's only really around 10 'active' members. Seems about the same size as the RHA, and definitely seems smaller than OPG. But it seems like people are still shying away because of some unfounded fear of being ganked.
But like I said before, these non-active BAFs have filtered into the other Bretonian factions. I don't think any other house has its trading factions represented as well as Bretonia does, and the aforementioned Mollies are there to bother them. BPA's been in flux for a bit with their current storyline, but hopefully they'll come back in activity soon.
But yeah like Stoat said, there's a lack of decent opposition, really. When there's nothing going on, traders can trade and pirates can pirate them, but armies just sort of sit around. BAF is for the kusari and corsairs, mostly, and they aren't around. Fighting the mollies is fun, even if greyhounds are infuriating, but part of me thinks that they should be more of a police matter, because they're mostly in Bretonia to pirate and run away, or the fact that they all live there. Chasing them around as a military force is a bit lame, imo, and BAF mostly keeps out of Dublin, although we've been there a bit more recently because well, nothing happens anywhere else. It's that or patrolling Omega 3, Cortez and Magellan I suppose. Or pissing about in Tau-31 and bothering people.