There's a thing, from ages and ages ago, that's important to this -
When the Assault Frigate and HAC ships were introduced into the game, there were a couple of news articles that mentioned, among other things, that these ships were designed explicitely for capsuleers and couldn't be operated without a capsuleer at the helm.
In various missions, FW plexes, etc. we encounter many empire Navy ships that use the HAC/AF skins and function as HACs/Recon/AFs/ceptor/etc equivalents for the NPCs. I've never been sure if I should treat these as "truly loyal" capsuleers or not.
One part of me says, "There must be other loyal capsuleers besides the players - if any serious government ran a program like the capsuleer one, they'd look at the failure-to-remain-loyal-rate the players alone have and say 'shut that thing down until we find a new way to brainwash them'."
Then another part of me says, "It's been 6-7 years since T2 ships came out. Surely there's been some advances in tech to open them up to others in that time? And it's not exactly like they match the HAC/AF/whatever layouts or are that hard to kill, so you can't prove they're T2 ships..."
And round and round and round it goes. Generally I hold to the idea that there are maybe a couple hundred thousand more "empire loyal" capsuleers that aren't player characters, simply because I can't believe all 4 (5?) of the national governments would run a program that poorly for a few hundred (at best) loyal minions. It'd be like giving every Joe on Earth free nukes just so you can keep the nuke-building factories supplying your own forces running.