I'm going to go out on an edge here and go ahead and say that the NPC Guards are abused constantly and without variance.
But it's nobody's fault. No one player does it. It's a fault we as a server have because it's a behaviour entrenched in everybody's roleplay.
These are behaviours that have been ongoing from a time where the server was still new and we as a community weren't as nuanced in our roleplay. It's the behaviour where we don't treat NPCs as logical people with their own thoughts and beliefs. We end up emulating shallow caricatures without realizing that these behaviours aren't improving our roleplay but rather detracting from it and reducing the amount of possible roleplay outcomes, not to mention detract of the overall accuracy of how an effective Guard organization would actually behave.
I'll explain.
The Vallaki Guard horn, it's effectively an alarm system, right? Guard is in trouble, so he blows that horn and all the nearby guards come running.
Im sure there is at least one other person here who's served their country in the military. And those people, along with any person who has worked in security, law enforcement, prison industry, or the military, I'm sure you're all familiar with emergency codes and response systems. If you were on duty, in a minor conflict with a civilian and they disagreed with you, or told you "no," to a request you made, you then immediately called for an emergency situation over your radio or comm, what do you think would happen when your commanding officer pulls you aside after?
He'd look you straight in the eye, and ask you why in the hell you just pulled four units off their posts because some civilian had a mouth on him. He'd then call you an idiot, officially reprimand you, and then if you don't lose your job or get demoted he'd tell you that if you ever abuse the emergency response system again, you're finished in your career. He'd also very likely tell you that this job probably isn't for you and if you can't handle a simple verbal conflict with a civilian without calling for backup then you probably should consider other career options that don't require self-confidence.
Vallaki is a city besieged by Gundarakite Rebels, oultanders, and all manner of monsters in the night. If we're going to roleplay a military force, no matter how primitive, we have to realize that there's a very good reason Guardsmen are posted at the gate at all times, and every time that horn gets blown for some stupid little spat in the outskirts the Guard who blew it just put the entire city at risk. It is NOT something taken lightly.
So why do we blow the horn?
I'll be a bit ruthless here and say its because we as players know that those NPC guards are higher level and we now know that with their help we actually have a chance of winning a combat scenario. And that horn gets blown on a -whim- because the player knows that there is no IC repercussion for how that horn is used.
Take that away, reduce those NPCs level, and what will change? Those PC guards are no longer mid level combatants, and they're going to have to be very careful about who they pick fights with and how. They have to make sure it's for a good reason, and plan preemptively instead of just approaching every PC in the outskirts, do the standardized hood check and name and occupation stuff, and hope one of them talks back so that a conflict can ensue.
I think it's a terrible demonstration of how actual guards would act and completely out of character behaviour based on out of character knowledge of character levels. Guards especially in Vallaki, wouldn't want to leave the city. They wouldn't be hood checking and harassing every outlander around because they KNOW they aren't in a safe location and if they overstep their ability they are going to end up dead. Our setting? The guards should be quite fearful of walking outside the city walls, the walls were made to protect them from dangers. You reduce the NPC Guard level, and suddenly that Guard has a much, much smaller meat shield and actually begins to appreciate that parapet or gate he can stand behind to keep him safe. The power here shouldn't be in the level of the NPC Guards, but the WALLS of the city, the size of their military force, the citadel itself, and the backing of the Count and the Burgeomeister.
This is what the reality should be for the Guards. Hesitance, caution, and only fighting if they need to. I have witnessed first hand guards on dozens of occasions go around hood checking every character in the outskirts BUT higher level/ better known or equipped characters. They treat them much more politely, and instead focus on the characters they "know" can be culled by summoning level 10 summons.
I want to clarify that in my opinion, I would say that only 50% of the Guard PCs I have encountered have engaged in the negative behaviours I've mentioned. There are some truly excellent people who have been and are guards and those people, I salute you. Your roleplay is top notch.
For me, 50/50 odds of getting a Guard PC who acts consistently with the setting and has a basic understanding of how guard would perform his duties is just too poor of odds to not address.
I've seen several people defend the current level of the Vallaki Guardsmen in very abstract ways and argue that the change simply isn't necessary, but nobody has yet to explain how or why the current Guard NPC level is NECESSARY for their roleplay. Does having level 10 summons "improve" the Guard's ability to effectively roleplay their control of the region? Level 10 is still pretty low, and anybody higher level who wanted to could still put the entire Team Garda in the ground. The only thing it does is allow Guardsmen to subjugate brand new characters with confidence knowing oocly that they don't have to fear losing.
In my opinion, if it's not a big problem, then you don't need higher level summons. If changing it won't make a difference, then putting them to 5th level shouldn't be a problem when the upside is we are building a more nuanced and accurate depiction of Vallaki.
In my opinion, the debate here seems to be between mechanical strength vs roleplay and setting accuracy. It's a mechanical advantage that is neither warranted by the setting or needed. If the point is to blow the horn, to give the outlander a "show of force," then it shouldn't matter what level they are if the point is to just make a point that the Guard has the numbers on his side. The level is arbitrary and if somebody is suggesting that the level of those summons matters, then they're missing the entire point of those summons.
So let's look at this objectively. What are the cons of reducing the NPC Guard level? What are the benefits?