I like npcs standing around, and think that removing them for the sake of being able to pvp without an npc is akin to emptying the streets to turn lower into an arena. The issue as I see it is that certain locations within the same zone are "protected" by different organisations, and there is nothing really stopping someone from running to a protected area to escape non DM pvp.
With the Market protected by the Silver Brands, the stairwell by Winston, the Elf camp, etc. they might not care if you mug someone, but they would most likely care that you are doing it on their turf. The only solution I could think of would be allowing non FD pvp only through the alleys and pump house adjacent, and having it stop if you reach a gang's turf. How that will not spill out into the other parts of Lower I don't know.
If you want to try and mug someone that close to potential protections you'll have to be quick. I just don't think removing npcs is the right solution.
With the Market protected by the Silver Brands, the stairwell by Winston, the Elf camp, etc. they might not care if you mug someone, but they would most likely care that you are doing it on their turf. The only solution I could think of would be allowing non FD pvp only through the alleys and pump house adjacent, and having it stop if you reach a gang's turf. How that will not spill out into the other parts of Lower I don't know.
If you want to try and mug someone that close to potential protections you'll have to be quick. I just don't think removing npcs is the right solution.