Check the ServerConfig.xml for these 2 properties;
MaxSpawnedZombies (default = 64)
MaxSpawnedAnimals (default = 50)
Also check EnemySpawnMode = True
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Check the SererConfig.xml for these 2 properties;
MaxSpawnedZombies (default = 64)
MaxSpawnedAnimals (default = 50)
Also check EnemySpawnMode = True