As soon as a town is open for PVP, that's all it can be.
Nobody uses a bank, because who wants to get shot after withdrawing 20k? Nobody buys gear, you can just get shot as you leave. Nobody wants to do quests there, because who wants to trudge across the worldmap just to get shot by some guy who's been camping the exit grid for the last hour? Yeah, I know there's exceptions, but it's ridiculous you see more people in NCR in a few minutes that you will in an hour or so in Reno.
Enabling PvP in a town just guarantees that it's dead, essentially. I'd rather see more than one town populated.
I don't see why the PvP areas can't be areas actually designed with PvP in mind, rather than just town maps.
Not that it'll change, however. The gangs like their polished turd of a PvP system.