I've had some odd problems (like a world full of empty containers for 6 months, holiday NPCs appearing days before they do for everyone else) but not that one. Sorry you're in bizarro world Tamriel.
Can you post some pictures of this please?
I did a forum search and there's actually quite a few posts like this from 2014:
https://forums.elderscrollsonline.com/en/discussion/125569/npcs-offline
None of which, notably, mention a solution or eventual resolution.
gcoop445ub17_ESO wrote: »same thing happening to me ):