Excellent post. That sums the problem up for me pretty well in my opinion.
Before you can fix the pirate/trader interaction (the interesting one) or the ganker/trader interaction (not so interesting), need to fix the Player Criminal/Bounty Hunter loop. At the moment with the bounty cap because someone was greed and sold bounties as credit in the real world, there in no insentive to play escort/overwatch role, let alone have a go at taking on a seasoned PvPer, risk/reward is too broken, just farm a few of Anacondas in a Res Site nets you the same.
Back in the days of Lough, both trade CGs had traders trying to deliver, blockaders (trying to stop the delivery), and overwatch on both sides interdicting the blockaders on the other side. It was fun, but even then the vast majority of goods were delivered in solo or private group.
On the Fed's site in particular a couple of challenges.
1) No obvious way to organise, as a bunch of mercenaries working in different ways to a common goal, verses an established player group (who had an excellent forum topic in their day),
2) Lack of overwatch. The Player Group had tools for (1) and other player group support, so did not suffer this.
This was pre BH nerf, pre engineering, and credits were still of value, that 5MCR bonty on player X was tempting.
So somehow you have to fix the social tools needed to allow co-op and opposing adhoc group play, and the risk/reward of Player Bounty Hunting, to fix the pirate/trader loop. I think it has been broken since 2014, so longer than it worked.
Simon
This is why I think that things like the following could make a worthwhile difference if applied where player murder rate is high:
Authorities pay clean players for entering interdiction minigame with a bountied player (takes criminal out of SC)*
Authorities pay clean players again for getting a normal ship scan of a bountied player in low space (stay in instance with criminal, keep them engaged and out of SC)
Authorities pay for data point-type scanning criminal player (criminal kept even longer engaged in low space instance) - this is currently very hard vs an agile ship, there might need to be a special module to slightly extend scanner range
Raise bounty cap to 10mil (some added incentive to fight the criminal player, and keep them even longer engaged in instance)
Pair clean combat fitted CMDRs at the star with haulers that enter the system and pay them if they also instance with the hauler when they drop goods (encourages close escort and coordination)
All these payments contribute to CG progress where appropriate
Change friend-foe assignation of players who've signed up to a "defensive role" that enables these payments, to mark them out for each other and for other clean CMDRs (enables spontaneous co-op and organisation)
Sign-up lasts for as long as they stay clean and in-system
Also subsidise rebuys for these players
Payments vanish if ship destroyed before hand-in (survival means something, incentive to live to waylay the next criminal, criminal can still score a victory by evaporating your rewards)
It's a collection of nudges, kind of "positive discrimination" to try and upset the current entrenched balance (or lack thereof) between normal-gameplay players trying to get things done (CGs, engineering, etc.), and those trying to stop/explode them in meta FDLs etc. Without removing or radically altering any particular gameplay style. Really I want it to be possible to switch from trying and failing to haul, say, to overwatch, and in the process still progress a CG and likely come out with more credits than you had.
*credit for this to people in this thread who said "make player interdiction not a total waste of my time"