You can also check out Spawn Conditions as outlined here a little:
http://www.eqemulator.net/wiki/wikka...pawnConditions
I'd also recomend checking out the quests associated with Sleepers (the four dragons) as a good example.
This might take a bit more work, but could let you have separate factions and npcs that spawn (a cosmetic/texture change would leave freeport guards on freeport faction despite looking like qeynos guards).