A few people have already suggested this. Find one group of Player pirates which is the biggest and baddest in the area, and make them 'Privateers'. Basically, they act as Pirates in the low-sec space of OTHER factions, and Pirate hunters in the low-sec space of the Empire which hired them. Pirate hunters, newbie protectors, at least if those newbies are from the same Faction as them.
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