Doesn't work. I have downloaded a side mod which adds most of the towns and citys to Middle Earth called Genstuctures. Idk if the citys and towns are some how affecting the spawns. Some of the citys have npc's that spawn by default and others don't. Here is the genstructures project https://genstructures.fandom.com/ru/wiki/Genstructures_Official. Note, its in Russian i'd use a transilator.