Stop with idea that low sec is only pirates. Just because people like to pvp in low sec doesn't mean they only want to gank noobs in pve fits. Its just a good way to pvp without the bubbles and blobs of null sec.
Low sec is/can be several things:
1)Low sec is NOT where empire meets null sec. It is the front line for the major empire wars. (Null sec BTW is of no interest to the 4 major empires)
2) Because its a literal battle front the laws can't be enforced as well which can attract illegal activity.
3) It can also attract fringe groups that are out of favor in the high sec major empires but may nevertheless be *more* moral than those in power in the empire.