TH will be less empty when players start there again (look at Military Base, although the bunker has a lot to do with that too) and it is a valid base of operations (Buying Ammo and Sell things are quite important for that for example).
Also: Back in NC 1 there was a time when Angels made TH a safe trading zone for all - with their weapons in the hand. The reason: There were no safezones, period. And no Enemies of the City Administration could walk through Plaza 1 without attracting unwanted attention.
I recognize though, that times have changed, and many players must be in the right frame of mind for that too, so that it can work.
But I still think we have been cooked soft by all those new games that issue more and more "safety measures" so you can do nothing thats anywhere to be considered "bad". Examples:
1) Thats your base. Oh and because enmies might come here we place High Level guards. Oh we noticed cooperating enemies will still manage with much losses to get in once in a while, so we decided the guards now instakill.
2) Loss when dying. Startet with full loss at UO. A few Belt items in NC. Or Experience. Or maybe none at all? That seems to be the progression so far.
3) Scamming - gets you banned in several games nowadays (Though I think that when you can't do anything to a scammer, thats the right decision. When you can hunt and kill that one though, its a different thing.
Hmm I am rambling about old timesGuess I am getting old, should get a wheelchair ready
I'll better stop it now. Some of the changes nowadays make for some interesting incentives though, thought I'll add that too.