A large number of characters, most of them being NPCs, most of those NPCs being tutorial NPCs.
Without looking at my notes, there were a guesstimated 17-20 characters (PCs, NPCs) she saw.
Of course yes, there is a chance that the NPC in question has a stealth skill, but from my understanding, tutorial NPCs and service NPCs are visible by all, regardless of faction or personal skills.
I remember that when I was in Kenton, I also saw all the NPCs in the city I was in, even if some were hours away. My perception back then was 0.
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Time to go to war with the Flame Tigers!