It is mostly NPCs.

It's filled with mostly people who require external rule givers because they themselves lack the knowledge and understanding of good and evil.

And the rule givers take advantage of this.

I really can’t stand when people say this, always feels like a cop out.

I feel like its 20% good, 20% evil and 60% goes with the flow. Thankfully those 60% are usually still kind loving people you just cant rely on them at all.