But it's not a BGS problem, and it's not really fixable without making fundamental-level rewrites to basic game mechanics and incentives, any more than anything can be done about Alioth Independents' sprawling expansion.
It'd need a carrot/stick approach in the form of reworking C&P as well as a rework to missions.
If pirate massacre missions and pirate assassinations were faction-ambiguous, for instance, it'd take a lot of the negative pressure off anarchy factions which are heavily targeted by them. If criminal factions could
generate those missions, even more so (I mean, what criminal gang doesn't want to take out the competition?)
Likewise, lawful factions should generate more
criminal missions - with a particular weight towards attacking factions with which they'd go to war instead of an election. The nice fluffy democracy might be willing to negotiate with a cooperative via diplomatic means, but interactions with a dictatorship should be at a more Cold War kind of level.
As I stressed above, anarchy factions would benefit from reacting to players killing their faction members as if it was murder regardless of actual legal status. On the carrot side of that equation there should be ways to "get away" with crime in lawful jurisdictions - even if you still take the rep hit because they
suspect you, you avoid the bounty because they can't
prove it. For instance, places where there's no system link should have crime reporting disabled outright, rather than just having the crime reported regardless but the cops not showing up. Removing the panopticon would go a
long way towards making it actually worthwhile to act shady.
Honestly I'd go a step further and say that low-sec should be lawless outside of the jurisdiction bubbles of stations, settlements and installations, with medium sec being lawless on planet surfaces outside of settlements - the galaxy would become a touch more dangerous and it'd justify giving cops a
lot more teeth in highsec (coincidentally, most of the places people complain about getting ganked are... high sec systems).
Another, slightly more complex solution would be for bounties not to be fixed
until authority ships arrive on the scene. Meaning, if you assault someone, blow them away, and
get the hell out of dodge before the cops arrive in response to their distress call, you should get away without a bounty. If you get caught red-handed, enjoy having a price on your head.
Fighting smart and sticking to lowsec systems for your shady dealings should be rewarded, as it is right now literally the only difference between high and lowsec is how long it takes for the cops to show up.