From what I've encountered the past few weeks. RP is only started as a precursor to PVP (because of the rules)
If a person can't be pvp'ed, RP usually doesnt happen unless its forced to happen by someone that those people can PVP.
First off, my LSF at the Freeport in Delta, not 1, not 2, but 3 Order Recon Cruisers. All of them repeatedly following me whenever i went simply 200 meters away from them. Within 2.5k of the Freeport!
Second, was a lol'ed attack by 2 order ships as I was repping an Order Bastet, trying to go to NY to blow up depots to drop navy rep. Which finally they realized what I was doing, after telling them a few times... did they volunteer to help with missions.
Third and most recently, 2 LPI chased after my Order Bastet, with a simple "Oi, You Order" "You die today"
Each encounter, either had PVP involved, or would have had PVP involved.
This list of screens, will show the latter half of an encounter with a Unioner Tagged Pirate Transport carrying Slaves. (after the ship had been left and allowed to pass)
So remember, RP Before PVP, and if possible, RP Without PVP.
Its might not kill you to try it for once.