Each day seems to reveal a new villain group who have arisen in the vacuum of law enforcement. It has gotten so bad that Rikti forcefield technology combined with more conventional techniques has been needed to define the 'safe' and not-so-safe areas of the City.
What are ordinary citizens to make of the dubbing the most dangerous areas "Trial Zones", especially when key infrastructure lies within them? The so-called Faultline is one such area - it supplies water to the rest of the City, yet is located in one of the most dangerous areas imaginable and frequently attacked. Another critical zone is the area once known as Venice; a Rikti attack on a Crey lab has left it a biological hazard, yet it is populated by Freakshow gang members who are potentially raiding high-technology from surviving Crey stores in the area. Both locations are important to the City for different reasons, but the end conclusion is the same - these areas need to be cleaned out and regular police just aren't equipped to do it.
Paragon City is in desparate need of protectors, yet the number of heroes entering is barely a trickle where a torrent is needed. The citizens of Paragon City both want and need superpowered heroes to help tip the balance. All it will take is the opening of the gates, the declaration that Paragon City is safe to enter and a flood of heroes will make their mark in washing away the grime that current infests city streets.