Oh, so the Black or White fallacy. "They didn't say no, so they must want me to".
See, "encouragement" would require rewards specific to that action - to give "encouragement" for players to do it.
Killing a Player connected to Power Play, no reward and a waste of time (penalty?) if you're grinding merits.
Killing a Player who has committed no crimes and is flying in Open, no reward (penalty (bounty for others to collect, harder to dock locally) placed on you).
So the only reward ("encouragement") given for PvP in game is when you PvP with someone who is "Wanted" - you get the value listed on them.
So you are "encouraged" to kill criminals. But not "encouraged" to touch anyone else.
Even stolen cargo is worth less than its actual value - it is more time effective to just buy / haul it yourself for better profits over time.
Wait until someone who wants to be a space pirate only, so didn't bother with Horizons and tries to pull someone over who did - next to planet.
They will get the "Too close" warning and drop out, while the victims just effortlessly drops in to orbital cruise, skims the planet and come back up the other side to carry on.
The forums will light up with rage