Oh, I remember it clearly being a detective, then superintendent of the Law Enforcement Department, just constantly making sure there're missions for people to join. When they added the automated patrol creation, that was very nice, but still had it's quirks.
Even then, since the mission and grouping system was not completely transparent, I feel like there're was still a large population that did not participate in the community.
That should be a very difficult problem for Xsyon to solve as it stands right now, the community aspect is not completely transparent and the world is empty.