The combine have nothing to do outside of staff-curated events OR taking Agora and some of it's resources.
So far Agora, both by server rules and by each side, is treated as (largely) a neutral zone no matter who controls it. Whether the rebels want to go in there to roleplay with us when we go out, to roleplay with the denizens, little actually changes depending on who controls Agora outside of the factory resources flowing to the controlling side
(Which is honestly an important distinction, technically we are fighting over the factory and not the town itself)
I recall speaking to an event staff in regard to the takeover in Agora (specifically rebel) and what sorts of change could ever happen, what they mention seems to hint that this shouldn't be too limited with what we are capable of doing in roleplays, this should include with the combine.
Has none of this ever been thoroughly looked into and discussed with changing the works with Agora? I personally don't see a huge problem with lifting some limitations and letting some sort of concept be brought to Agora, I think it'd be fun for everyone, even if it opposes some sides.
The blacksuit restriction for example made tension, I chose to make a whole outburst about it in-character with a speech and mob-like moment forming a little "anti-agora + combine" area, hoping that people could start thrashing and ignoring the blacksuit law which did actually sorta worked!
I really hope you guys could've taken the chance on maybe bringing a more-policing behavior around agora as you guys are combine and do technically own the place, the neutral people shouldn't be too refusal since you guys fought your way to own it.