TBH, I arrived at the same conclusion as the OP, but from the opposite direction.
Cannon-fodder NPCs help enable griefing by allowing most players (and I definitely include myself in this category) to be lazy about their builds, which does set two completely different standards for what might be expected in Solo vs Open.
I'm not sure that's quite it. Sure, the NPCs could be made even stronger, but I don't think that's their problem nowadays. A Deadly NPC Anaconda pirate or assassin is certainly no match for a high-end combat build, or a pilot who knows how to take advantage of its weaknesses, but it's quite capable of being an interesting threat to a mid-range multirole flown by someone other than a top pilot ... and things like the CZ special forces wings are a challenge for most players in most ships, the best aside.
The problem is, fighting NPCs is basically entirely optional.
- all of the tougher NPCs are gated off in "go here for a fight" zones and won't proactively attack (this is mostly fair enough, but you'd expect Elite ranked missions to sometimes send them after you)
- interdiction attempts are relatively rare to start with if you don't stack a lot of missions or hang around in supercruise for ages
- almost all the NPC interdictions are very easily winnable
- even if you can't win, you can high-wake in 15 seconds or in many cases just boost out of range and low-wake even if they mass-lock you. (especially if you have drives engineering)
- security ships will show up in most systems pretty quickly (by NPC standards) even if you can't do that
In Elite, FE2 or FFE the NPCs were individually considerably less dangerous in a stand-up fight than the Elite Dangerous ones ... even when a whole wing of them appeared, a mid-toughness player ship shouldn't have trouble taking them on. But you did actually have to fight them ... and yes, you could high-wake to get away, but you had very limited uses of that and you'd eventually have to fight something to be able to reach a station or another fuel star.
So there's no real incentive unless you like fighting the NPCs to put anything other than a paper shield or any weapons on your non-combat ship ... whereas in the previous games there were about ten systems you could safely take a completely unarmed ship to, and the rest you would die.
Now ... on balance, this may well be the more popular way to design it. Not everyone wants combat in their game ... and Frontier have - while making the NPCs more dangerous - made them even more optional since 1.0. I remember running quite a few "vs NPCs" exploration escorts in 2.0 and 2.1 because the NPCs would quite happily go for explorers back then ... which was itself a toned down version of 1.0's "shell of angry NPCs" that would hit explorers out to about 500 LY regardless. Nowadays, that sort of thing is so rare that when NPCs started firing on explorers at DW2 WP3, no-one was entirely sure if this was supposed to happen or a bug.
But it certainly means that many players aren't prepared for combat at all, because the game has taught them that combat is always completely optional.
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