There exist guidelines for how powerful most rulers and heroes and city guards are in the Inner Sea region and those characters pulled in from Forgotten Realms. The vast majority of humanity are “standard,” ranging in level from 1st to 5th—most with NPC classes like commoner, expert, or warrior (it’s uncommon for a character with only NPC class levels to be above 5th level).
A significant number of a nation’s movers and shakers, along with other leaders, heroes, and notables, are “exceptional,” ranging in level from 6th to 10th.
“Powerful” characters, ranging in level from 11th to 15th, are quite rare—typically only a handful of such powerful characters should exist in most nations, and they should be leaders or specially trained troops most often designed to serve as allies or enemies for use in an
Finally, “legendary” characters of 16th or higher level should be exceptionally rare, and when they appear should only do so as part of a specific campaign—all legendary characters should be supported with significant histories and flavor.