Trying to fiddle with vignettes (these determine where missions go to) has some mixed results. It may be possible to force all missions to go to a single spot in a system (making them more interactive, dangerous), though you change one thing and suddenly the bases stop giving missions.
Next patch will have some systems that have a lot of missions given out to multiple factions via a Freelancer freeport, meaning it is good for a wide variety of factions. GMs can then make the PvE plugin more profitable for said systems, in theory bringing more people to it and making for interaction. It is still a WIP of course and likely needs a lot of work.
If someone wants to help with systems work for missions, to help them be more interactive, feel free to reach out to me.