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The quests are also level specific.
If not the appropriate level you probably will not see the person.
For example in one of the quests you must visit a woman stranded on Outcast Isle.
Shes not there unless you are in this quest. Missy Mitrage or something like that (sorry drawing from memory). I'd been to outcast 100's of times, never saw her till on this quest.
So...
Clothing Quest - Quest Giver - Required Level
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A Pirates Life - Truehound - Requires Level 10
Clothing Fit for a Pirate - Sunfellow - Requires Level 15
Adoria's Family - Adoria - Requires Level 20
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