I'm playing makes few hours and came across a scene somewhat strange , I was in NY system and so I had it! ie the busiest system of the galaxy and no cargo or a police officer ? why that ? where did the NPC ? they rejoice at night? know, i love to see the NPCs working I missed most of them now ... so it was even required .
" In the moment when I truly understand my enemy, understand him well enough to defeat him, then in that very moment I also love him."
NPCs were turned down when there are many people online, and mostly around if there are ~20 people playing. Then again, you won't see that amny either. As for why, ask the development / admin team.