Been thinking on this. Maybe some stations are more private than others.
For example: you are driving in NYC and you run out of gas in Manhattan. You walk into the Trump Tower to mooch petrol. Sure, The Donald would love to sell you some fuel, but the Trump Tower has no gas pumps, since it's an office tower that belongs to Donald Trump. It's public enough that they are happy to let you walk around inside, but they aren't so public that you can buy fuel and stuff.
So that's what I figure these smaller stations are like. Some rich paunch's space toy. Not big enough to be an interstellar player, but big enough to put billboards for Zorgon Peterson in space.