In which case, if the combat offered by the NPCs of the other eleven Powers isn't to the liking of "a lot" of players who don't engage in combat at all, Powerplay 2.0 is likely to see less takeup than it might otherwise have done.
As I understand it, the powerplay NPCs no matter how dangerous will leave you alone in friendly space.
So you can run your shieldless hauler between friendly ports in safe territory all you want, which is... actually fine? I have absolutely no issue with that.
If people want to complain that they can't
go into enemy territory and
actively attack their enemies without consequence, then... well.
If you want to go out of your way to affect other people's experience, it's only fair that you be affected in turn. That's one of my primary issues with PMFs as the sandcastle-building-coop game layer - the fact that, because it's done through the BGS, they can be attacked
completely anonymously or even if responsibility
is claimed the person kicking over sandcastles might not even have a sandcastle of their own to kick back. If I were designing a basebuilding/territory game layer to exist on the squadron level, below powerplay, and attacking other people's stuff was on the cards, at
minimum I'd have a requirement that the attacker not only be participating in that game layer, but have an asset in range that can be attacked in turn.