I built a creeper farm above y200 and have gotten 0 spawns over several hours... The same exact farm in a single player world and in a Minecraft realm world works fine, whereas on a public server with ~5 or so people, it does not work.
The farm's footprint (21x21) intersects 4 chunks, and is over the ocean, at a transitional zone between cold and warm water.
Could it be a bug due to the height, or the biome transition?
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I am at the proper distance (~30 blocks away), and have experimented with different distances within 128 blocks with no effect. The farms DO work in the single player and Minecraft realm worlds, as stated, so it has nothing to do with my distance.
The exact version of the public server is 1.13.2, as stated. I forgot to clarify that it is a vanilla server.
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Update:
I did a test by making a private server and using two accounts. While both players were at the farm it worked. I then teleported one player to another area, leaving one to watch, and creeper spawns ceased. If the player who was away logs out, the farm begins to spawn creepers again.
I repeated the same test on my Minecraft realm world, and got the same results, as one would expect, since they are both essentially the same server program.
Also, I discovered that if the other player goes into the nether dimension or the end, then the creeper spawns return again!
So far, it seems that creepers do not spawn when another player is logged in, who is not also at the farm, or in another dimension. Also, if each player is at their own dedicated high y level creeper farm (far apart), then spawning occurs at both simultaneously (albeit with slight hiccups from time to time).
Issue seems to be connected to this:
MC-2536
Please check if that's still an issue for you in the latest 1.14.4 stable release or the latest 1.15 development snapshot.
On a 1.14.4 server, with a mob farm over the ocean, view distance set to 10, mob spawns are good if alone on the server, or alone in the over world dimension. With anyone else in the same dimension, spawns do not occur. I have not tested the current snapshot.
Are you close enough to the farm? Mobs despawn after going 128 blocks away from them.