Couple of possibilities come to my mind:
1) You are using the Titanium or Secrets of Faydwer client. Mercenaries were introduced in Seeds of Destruction, which came after SoF, so only the Underfoot client and later will support Mercs.
2) Assuming the server code is made to look for it, your Expansions rule may be incorrect, and does not include the SoD bit. The default value of 16383 includes all expansions up to SoF, which does not include SoD and its mercenaries. If you want to be ultra safe and enable all expansions through the latest Live one (The Darkened Sea), the correct Expansions rule value would be 2097151.
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