I can tell you that when it doesn't work for you it's definitely not because your game is special. It has to work, period.
You've done something wrong and it can easily be fixed.
Did you add both addonpeds and addonpeds 2 to dlclist.xml. If not, they won't load.
If you want, post your 2 content.xml and the 2 setup2.xml and we can see if there are any obvious errors.
As I wrote before, do NOT rename peds.meta.
Make sure the peds that aren't spawning are properly entered in peds.meta
I'm assuming you're using the tutorial templates and not the Method one.
Overall there are 3 variables:You need the proper names in content.xml and setup2.xml to reflect addonpeds.rpf and addonpeds2.rpf or whatever you named them. The correct entries under normal or streamed or male or female in peds.meta The addonpeds.rpf etc must all be entered in dlclist.xml
This is a no brainer.