Good question. Compared to the average NPC on the road, Level 3 is "high" to them in terms of ability scores.<br/>Though this is the capitol of Cormyr, there are many higher-leveled NPCs around doing their business.<br/>There are some town guards and local thief's guild operatives that are indeed higher than Level 3.<br/>Blake Titangate for example in the Golden Goblin is higher than Level 3.