Quick question regarding Citizen Lvled-List

Hey so Im tinkering on my lvled lists and on testing it I found out, that all the farmers/merchants/priests/Normal ppl dont seem to use the items from the lvled list. Newly added npc from populated skyrim (or something like that) seem to use it) So my question would be are normal npcs using outfits instead of lvled list? If so how can I change that? Lists in question were all the ones with cloth in the name.