Fdev would be the ones that choose which systems are limited access I know a few carriers out there that have 30-50 years worth of upkeep. This problem with abandoned carriers won’t get better without action.
I like the abandoned carrier graveyard system. Have a permit locked system within 500 ly of the bubble. If your carrier is placed there the owner receives temporary access to the system.
To the Cmdrs that say what if i leave the game for a few months/year? Well i say to you why would you care if Fdev moved you then? You’re literally hindering access to active players.
There's a maximum number of carriers per system, FDEV would have to keep creating new systems to act as carrier graveyards and that eventually cause issues with access for players as more and more systems within 500ly of the bubble become permit locked.