It's not PvP armour, if it was every PvPer would be wearing full OFAB. Instead short of the odd prof like soldiers which do wear a modest handful of OFAB most PvPers wear little to no OFAB at all. Even the weapons with the dread, Xan or prisoner ones at TL7 and AI or others in earlier TLs tend to get used over OFAB ones.
The only reason VP is as high as it is at BSs is in an attempted to draw people to BSs as most were dead. We don't even have to speculate about that one as they specifically told us they were doing it for just that very purpose.
OFAB armour we were told before the launch of LE was to be not as good as combined but easier to get. This would make it ideal for newer players looking for good armour and are willing to spend some time getting it but can't afford combined. Although given how VP currently is gained it doesn't work out like that at all.
We have been told by Means new ways of gaining VP are suppose to be coming. That will hopefully correct things so it is more reasonably accessible at any lvl.
Sil took over as game director after the launch of LE, most of the LE related changes, additions and the first big VP bump at BSs. One of my beefs with Sil during the time he spent as GD was that he barely did a thing with all things LE and just let all those broken and messed up things sit. It wasn't until Means took over that more changes with LE related content started to happen with promises to do more.
The biggest LE related changes Sil was involved with was the second smaller VP bump at only the "lower" BSs, some more items in the VP terminals, the BS disgrace period if you left early and honour points. There were the odd other things like to take another crack at making neuts function with the side they signed up for better and to a certain degree the PvP system changes but that was about it. Most of his time as GD was spent adding lots and lots of new stuff for mostly TL7s.