Random NPCs in the wards would certainly make them feel more lively. Despite my ward of Mist being full save the large plots, it feels like a ghost town. I never run into anyone anymore and it's not like they're all hanging out in their houses. Despite the brilliant changes last patch to furnishing additions and menders, being kicked out of our house every time we zone into a duty means people are still hanging out in town.

Until that problem is resolved, I still see the wards being ghost towns, even with new NPCs. That would just at least make them feel a little alive.