I think it makes absolute sense.
The police/navy/military factions have the means to control traffic , oversee application of laws and impose sanctions in house space.
When it comes to systems bordering house space it makes sense that they would not have that amount of control. These systems should be kinda of a wild west imo, with certain lawfull interference , but still mostly roamed by criminals, pirates and such. These are Independent Systems and even tho houses assume control over them , they should still remain Independent and less full of threats for unlawfulls.
Also it is not like unlawfulls are gonna have complete control anyways. Police and navies can still patrol the systems but they won't attack every "red" willy-nilly on sight. They will have to RP and wait for the pirate to actually put that houses traders and/or assets in danger for them to intervene.
