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I would recommend either making the event private or making it completely open to the public. It sounds like playing the role of a NPC citizen doesn't add much aside from atmosphere. That can be done with emotes. I think you will find people will be more ready to participate if their characters can be actively involved.I don't think that public events are a problem. Actually, I think they are great for the community. I just think you should consider what the benefit of a player playing a NPC would be over simply emoting one.
But then, I may not understand the event description.
But then, I may not understand the event description.