First & Foremost, what's your alternative?
Likely few & far between given this market in federal service and elsewhere.
If you can move somewhere else where it's cheaper to live and you want to do that, do that.
OTOH, if you want to stay here you have to accept that in general, as a Fed you are going to be paid less in many fields (esp. professional) than in private industry, that is part of the deal.
And career ladder is what it says, there's no right or entitlement to a promotion above it. It might be the fair thing, but there is little or nothing fair about what is going on regarding federal employee compensation etc., these days (I retired after 26 yrs. including the last 7 topped out and with salary frozen the last 4 or so).
Not sure what you mean by "other people need promotions"... do you mean career ladder promotions that are frozen? Or do you mean other people "want" or have earned promotions through excellent work. People "needing" promotions has never been a relevant criteria for me or my agency in determining who gets promoted, nor should it, really.
Your only other choice is to vote with your feet, if you're lucky enough to be able to find something else.