Attribute levels are only really relevant for hostiles. Take a look at the same function in HandleSectorTacticalEntry(), a few lines above I use CreateArmedCivilain(..), which creates goons:

...
CreateArmedCivilain(CivGroup.BOUNTYHUNTER_CIV_GROUP, SoldierClass.SOLDIER_CLASS_ARMY, 			13032, hostile)
...

In this case, it is used to set up (possibly) hostile bounty hunters I added for a new quest where I tried to externalize as much of that quest as possible.