Since powerplay is content for a fringe-group anyway as it seems it could as well be changed to fit better for the most neglected group - the open pvp-combat folks.
Bwahahaha. Did you go to Trump University or something? PvP gets way more attention than PowerPlay does, both from players and FDev themselves. Hell, every single time Ed holds one of his live events, there's guaranteed to be PvP action and call-outs to whomever kills people.
PowerPlay in its current incarnation doesn't work as a PvP only exercise, as that would move it entirely from being a borderline cold-war political simulation to an open warfare simulation. It'd also completely neglect the very notion of support and logistics - extremely boring and tedious things to do, but without which no kind of territorial warfare would ever survive.
PowerPlay in its current incarnation doesn't even work as an open only exercise, as the current mechanics for PowerPlay massively favour certain powers, as they have no expensive logistics bottlenecks.
It
might work with bonuses for open participation, but given how often stuff breaks in PowerPlay and how it tends to break in irreversible ways, experimenting with bonuses for open participation on PowerPlay is a bit like experimenting cyanide in the middle of a kindergarten. You can't even beta-test PowerPlay stuff properly - every time something is introduced or changed in PowerPlay, we basically have to keep our fingers crossed that it doesn't break anything when it moves to live.
Test open participation bonuses on CGs. They are perfect for testing this kind of thing, because they're popular, they change every week and people are very eager to break them in all kinds of interesting ways. Breaking CGs is also far more likely to get attention and fixes than PowerPlay. It's easy to poopoo PowerPlay, but keep in mind that every single Thursday morning (game time) you have a community of players waiting to see the outcome of their combined labour while at the same time hoping that nothing broke this time around - throwing more stuff on top of something that's already horribly broken in a multitude of ways in an attempt to make it more popular isn't going to work.
To my mind, the reason that PowerPlay is unpopular, is that the vast majority of people who try it do it for what I consider the wrong reasons - selfishness. They see the payout and want that or they see the modules and want that. Get rid of the payout, modules and cost of merit hauling, and you will get rid of a huge amount of the complaints with PowerPlay, because suddenly all those players will stop participating. PowerPlay doesn't work as a selfish endeavour - if you try it, you'll end up hating everything it touches.
PowerPlay is like trying to herd bullet ants while naked and covered in honey. Doing it on your own makes you question your sanity and reason for living while cursing the very idea of doing it - rather than looking yourself in the mirror and wondering why you signed up for it in the first place. Doing it with others is where it gets fun - you get to compete with other groups, laugh at how stupid they look, while you congratulate your fellow ant herders for not looking stupid and having managed to find a way to do it without feeling silly.