I was talking about
types of content. For example, interdiction+attacking traders, that exists both for piracy and powerplay-undermining. Transporting stuff, that exists both as trading and powerplay-propaganda-delivery. The underlying gameplay is in large parts the same, it takes place in the same locations, using the same tools, but for different reasons.
So some ground bases would be PP-related, of course. Attacking them as an unpledged CMDR would net you nothing but the ire of the defenders and a big fat rep arrow down somewhere. But there would also be pirate bases to wipe out. Small trading hubs or scientific bases to rob of any valuables. Military outposts that become targets in war between minor factions. All still the same underlying principle, and everyone has a way to experience the same type of gameplay.