I have been unaware of the "repeated ad program failures" that your question mentions. Have you written a hub pages article about them and/or discussed them in a forum? If yes, please give the link(s). If no, please give details about the failures, either in a hub or in a forum or as a comment on your question.
I suppose a hubbers advocacy group that asks for improvements in HubPages might have more impact than suggestions from individual hubbers. Nothing is perfect and in no need of improvement, and presumably management and hubbers both want an ever better website. But are there any big issues and do most hubbers agree about them? As I said, it would help clarify your question if you would describe the nature, causes, and solutions of the ad program failures that you perceive.
I myself don't have any big complaints, but I'm not very savvy about the workings of the site. My big problems re how to make money hubbing are personal -- how to write better hubs faster. When I can write at least two excellent hubs per month, I'll be able to turn my attention to details of ad programs or whatever.
If you do make a convincing argument for the need and do organize interested hubbers into a union or whatever sort of organization, I recommend that it adopt nonviolent communication (NVC). See http://www.cnvc.org/
Are you familiar with National Writers Union (NWU) (http://nwu.org/)? It is Local 1981 of United Auto Workers (UAW). I belonged some decades ago but had to drop out when they raised dues above what I could afford. They can help freelance writers with grievances over contract issues, copyright issues, etc. As best I can see, there is not a role for NWU among hubbers, but I'm not a very experienced hubber.