Maybe I'm just adding fuel to the fire, but isn't the idea of shooting pirates ICly the same as FW? I mean, one is against player characters, one is against NPCs, but in-game there isn't really a distinction between them. Pirates have capsuleers as well. Whatever your take on the gameplay and challenge of it all is, you'd think the government wouldn't really throw a fit because capsuleers are wasting their time shooting Guristas and Sansha raiders who don't really care about their space instead of entering their regulated CEWPA conflict.
The idea of separating PVP and PVE content seems like it's more of an OOC issue than an IC one. You'd think loyal Caldari would be fighting the Feds and/or the pirates. Hell, you could make the case that a freighter hauling equipment to Caldari fleets farther from their home system would be loyalists, or scientists trying to build better weapons for them.
On that note, you could go into the CEWPA zone to get paid or go out exploring for Sleeper sites out of a sense of loyalty. It doesn't seem like we really have a good in-game way to measure loyalty. That's all in characterization that gets handled in the actual playing of the character.
It's kind of like when someone plays a scientist who is supposed to be a genius. You can say that, and you could have trained skills from when the game began and thus have a huge wellspring of knowledge. However, if you can't play someone intelligent and you're constantly being outwitted at every turn, you can't really blame others for not taking the game statistics seriously. Likewise, loyalty seems to be something you have to weave into your character play rather than something you can demonstrate with points or stuff.
Some of the most loyal people in history went down hated and disrespected by their own governments and plenty of people who were hugely supported by their governments until we peeled apart the history and found out they were terrible people who didn't give a damn about their country or causes. It doesn't seem like we can measure a personality trait with statistical government approval.