Most fantasy games do not focus on the criminal element or, more precisely, the societal rules that govern acceptable behavior. Granted, in a wilderness setting, criminal behavior can be overlooked by other party members. Why else would bandits prefer remote, uninhabited locations in which to hideout? In population centers, similar behavior will most often be noticed and draw the attention of the townsfolk. Most adventurers travel from town to town and sometimes from kingdom to kingdom. Laws and codes of conduct often vary from place to place, and to make things worse, such variances are not clearly displayed or communicated. This overview is designed to focus on generalities rather than specific rules that govern the law in population centers.
Any good law enforcement officer will tell you that ignoring criminal behavior is a sure way to entice its growth. On the other hand, developing rules and regulations for the tiniest of infractions is a good way to infuriate the public and cause revolts. A good balance is needed. Fortunately, in the previous sections, we developed a scale to determine the law level of a given community. We can make a few assumptions at this point.
First, in good, aligned cities, we can assume the townsfolk support local law enforcement efforts. This is mainly limited to reporting lawbreakers and often testifying in criminal proceedings when the wrongdoers are caught. In evil-aligned cities, this assumption cannot be made.
Second, in law-aligned cities, we can assume that the local law enforcement force, both in size and experience, is adequate to deal with most criminals. The opposite holds true in chaotic societies. In chaotic societies where local law enforcement is lacking, the citizens take the law into their own hands, rarely pausing for due process or proper investigation.
Finally, we come to the topic of the capability of the law enforcement agency. Having a fair set of laws is one thing, but enforcing them is totally different. Often, adventurers are more skilled in arms and other capabilities than local law officials. Most seasoned adventurers can easily dispatch a city guard or two; some spell casters can even neutralize a dozen at once. This is the reason that most fantasy law enforcement organizations are either run by specialists or can hire them when they need to deal with powerful adventurers. Taking on a few guards is one thing; taking on a dozen guards led by a seasoned paladin is something entirely different.
In order for a population center to enforce its laws, the laws must exist in some form. Smaller towns leave that up to a ruler, mayor, or the local elders. Larger cities often have a written code of laws and or a counsel that makes policy. In either case, these laws help shape the town’s identity and set the tone for newcomers. Listed below are some guidelines that can help with the laws and the punishments that result from breaking them. Each town is different, and GMs are encouraged to make the laws of a given town reflect the population that calls it home.
It should be noted that some crimes are not universal, especially when viewed with respect to different races. Theft in a dwarven society is a serious crime, while the same behavior in an orcish society is barely noticed. To some extent, the racial law level modifications listed in the previous sections account for these differences. GMs should still be mindful of the specifics of a given population center when the law level is determined – GMs can and should adjust it up and down as it helps their campaign. Once set, however, randomly changing the law level in a given population center is not recommended.
The table above provides the basic list of common crimes and the law level at which they become a crime. Then, the common fine is listed for the infraction, and finally, the punishment for the offense. In cases where the fine cannot be paid, the punishment is typically extended (see Endangered Servitude below).
Adjustments to fees/fines and punishment durations – each additional law level above the required amount for the behavior to become a crime adds 25% to the fine and punishment duration. Thus, a petty thief caught in a town with a 6 law level would be fined 4.5 gps and spend 11 days in jail. The same thief caught in a town with a 7 law level would be fined 5.25 gps and spend 13 days in jail. Sometimes, however, especially in more lawful societies, the punishment can be upgraded to the next harsher level rather than the duration extended. Thus, the same petty thief would be required to serve hard labor for 7 days rather than simply remain in jail for 11 or 13 days.
The standard progressions of punishments are as follows. Fines, days in jail, weeks in jail, months in jail, years in jail, hard labor while in jail, and banishment or death.
Lawful societies often incorporate corporal punishment instead of or in addition to fines. Such punishment is often observed by the townsfolk in a public lashing.
Evilly aligned societies often incorporate other types of punishments such as beatings, torturing, maiming, and slavery. Slaves can then be bought and sold as property or simply thrown into the gladiatorial area for amusement.
Endangered Servitude – a common practice in most societies where the accused cannot pay the fines levied against him. Commonly, the length of the servitude is determined by the amount of money owed. The accused simply agrees to ‘work-off’ the dept. Fair market value is often accepted for work or skills used during the servitude. Most good-aligned societies limit the maximum length of servitude (7 years being the most common).
Bureaucracy Rating (Optional) – this represents the amount of ‘red tape’, organizational overlap, and defined jurisdiction. Bureaucracy ratings only manifest in population centers with more than 5000 people (1,175 families). A bureaucracy rating of 3 is considered standard, and the list of fees/fines given above (in Table 4) is the norm. Higher bureaucracy ratings can increase these fines by 5% per point above 3, while lower ratings subtract 5% per point below 3.
Licenses, Permits, and Certifications – As the bureaucracy rating increases, societies employ various controlling methods. These methods often include licenses to accomplish a specific behavior (hunting license, merchant’s license). Often, these licenses will have to be renewed periodically. Sometimes permits are needed from the government to accomplish a specific endeavor, such as building a structure or dumping garbage in a specific location. Unlike licenses, permits typically cannot be renewed. Finally, some cities require that individuals acquire and maintain certifications. Often a function of various guilds, guild certifications assure that craftsmen meet a standardized level of competence. Failure to obtain the proper permits, licenses, or certifications often results in fines and, in rare cases, other types of punishment.
Law Enforcement - A well-kept mostly lawful city will have 1 law officer (guardsman, watchman, etc.) for every 125 citizens. Slack cities, more chaotic by nature, will have half this number. The amount of law enforcement personnel is heavily influenced by the governmental structure. Listed below are some guidelines for law enforcement personnel and facilities.
Town Guardsmen – these individuals function as the town police. They are often trained as warriors and identified by some badge of office.
Guardsmen of smaller population centers often wear leather armor and carry clubs and short swords.
Medium population centers often equip their guardsmen with chainmail armor, helmet, shield, and arm them with clubs and spears or broadswords. Group leaders often receive additional training in weapons and police procedures. Occasionally town guardsmen of medium sized cities have guard dog companions.
Larger cities often equip their guardsmen in splint mail or banded mail armor and shield. They often carry clubs, long swords, and spears. Town Guardsmen of larger cities are better trained both in weapons and police procedures. Often these individuals have access to specialized equipment and often have guard animals to assist them.
Watchmen – these individuals are the lowest tier of law enforcement. These individuals are responsible for mundane tasks such as lighting lanterns/torches, checking secured areas, and foot patrols. They are typically minimally trained and equipped in leather armor and carry clubs and/or spears. Watchmen are the eyes and ears of the local police force and often function as back-up troops. Most watchmen advance to town guardsmen after a few years of experience.
Specialists – These individuals often function as the leaders of the town guards. Most are drawn from the warrior vocations often with military experience and possess expert weapon skills. They are often equipped better and usually carry superior weapons. On rare occasion spell casters fill these positions, more often in larger cities. These individuals will be quit functional leaders and can bring magic to bear on law breakers.
Guard Dogs – most medium sized population centers and large cities also employ guard dogs alongside guardsmen. This increases the effectiveness of the town guard. Most guard dogs are not armored but they are well trained. Guard dogs are trained to track by sent and seek out outlawed materials.
Specialized Equipment – In well-funded town guardsmen often possess superior equipment. Alchemical smoke bombs, irritants, and subdual drugs are most common. Ranking officials sometimes carry magical potions or minor magical items. Commanders may have access to magical manacles, scrying devices, and/or truth potions.
Law Enforcement Facilities – These structures are used to house criminals and law breakers. They vary in size and complexity, but most are well maintained and quite functional.
Larger cities will, of course, have multiple jailhouses or, more commonly, a single large facility. Thus, a city with 6000 people and a low level of 4 could have a single reinforced multi-level stone structure that functions as a police headquarters and jail. This facility would have a capacity of 400-500. Alternatively, the city could have several police precincts throughout the city with a capacity of 40-60 prisoners each. The specifics are up to the GM to determine.
All of these structures will have heavy wooden shutters, which can be locked or, more commonly, iron bars in the windows and fireplaces. The floor plan would take into account the presence of prisoners and afford the town guards a level of heightened protection. The larger facilities will also have wooden or stone walls surrounding them. Most of the larger facilities will also have patrols around jailhouses and prisons.
Special Racial Considerations - Law enforcement varies based on racial preferences. Elves, in general, are not in favor of long jail or prison terms, while dwarves often extend such. Orcs and Giants prefer to dispense justice by corporal punishment or simply by maiming an individual guilty of a severe crime. As a result, jailhouses are not common in orcish or giant societies. Wingfolk ground guilty individuals and deprived them of flight, and Halflings favored bread and water as a form of punishment.
Special Hirelings – Occasionally, law enforcement is faced with expertly skilled and often powerful individuals who refuse to follow the law. Adventurers often fall into this category. Although smaller villages and towns have a hard time dealing with such individuals, larger communities often turn to special hirelings to solve these problems. While a small town may send out messengers to other communities to hire mercenaries, medium and large towns can often find suitable individuals locally. Often, spell casters are hired to find hidden criminals and capture other spell casters. Sometimes, towns turn to churches, especially those devoted to law and commerce, to aid in the capture of wayward criminals. If the price is right, mercenaries are always willing to lend a hand and capture criminals.
Bounties: More often, however, bounties are placed upon the heads of known criminals. This is especially true if the criminal(s) do not permanently reside within the community they are abusing. Sometimes, large bandit groups terrorize several communities in an area, or pirates prey on shipping in a given body of water. Adventuring groups can often become bounty hunters between adventures. GMs should keep in mind that an adventure need not always be focused on lost or hidden treasure. A city adventure to capture a known criminal can be quite rewarding and often well-appreciated by the local townsfolk. Bounties, typically with hand-drawn pictures of the criminals, are posted in the city and can be obtained from the local sheriff.
Bounties, once issued, are very difficult to recall. Further, bounties can be increased as the criminal continues to prey on the community that put out the bounty.
GMs are encouraged to develop a group of individuals, often sponsored by the government or a temple, to hunt down and bring lawbreakers to justice. These individuals should be built on a Player Character template with full access to talents, enhancements, and magical/psionic items, with backing/funding from an organization.