If I were designing the player base feature, I’d have the mission boards still constitute local BGS factions with normally generated missions, BUT the player would be able to select the categories or types of missions which were generated. Think of the player input more as guiding than directly controlling the mission generation, narrowing them down to a more focused selection. Or not of course, players wouldn’t have to narrow anything and could just let normal random missions be generated by the BGS in their bases.
I’d also give the players some choice as to which local BGS factions they wanted to work out of their outposts. I’d also implement the ability for the player to make a new faction, their own, which of course owns the outpost. With deep space player built outposts the player faction would be the only one there.
With regards to how the player outposts would incorporate into the BGS, I’d design them to be included in the BGS but very miniscule in how much they can effect it. That said though, with lots of player activity at an outpost a small player base could have an impact. This would give incentive for players to advertise their outposts if they wanted to impact the BGS, maybe even offering good prices on commodities and goods.
I feel like an important part of any player base feature would be the business side of it. Player bases should not be free to operate, they would have weekly or monthly operating costs. A small outpost with very minimal facilities could be very cheap to maintain, while a larger more expanded base with all sized landing pads, a mission board, repair & restock services, even outfitting, a base like this would cost much more to keep operating. That said though the operating costs should be balanced such that flying missions out of your own base would be enough to keep it operating. None of this should approach anything like what Eve Online does, keeping things simple would be much more aligned with Elite in my opinion, yet give it enough depth and variation to make it interesting too. The design should be to encourage playing the game and allowing them to have a degree of tailoring how they play the game, rather than overly punish players for using the player base feature.
Anyhow, that’s how I’d like to see it done. Now back to your AAA debates and such.