The description is wrong. Members of the Trade Bureau (or whatever it is called) appear only when any nation control a region. So if a region is Beastmen controlled, this person would not appear. However if any of the nations controlled this region -- and it is almost always San d'Oria since this particular region is Ronfaure -- this person would be there.
Yup. What the write-up probably meant was something like, you may only TRADE WITH an outpost trade-NPC if you are a citizen of the region that controls the outpost's area.