The game is really missing the "unintentionally evil" characters that you get in real life. The dictators who take control to try and create order from the chaos they perceived, or to rescue the people from the previous misguided hero. They think they're doing good, but it doesn't work out that way.
There's plenty of opportunity for that. Mazoga, for example could easily have turned into a major vigilante obsessively hunting down the former members of Mogens Wind-Shifter's gang, or anyone she suspects has a connection. Let her get a suspicion that Count Caro was bankrolling them, and see what happens.
Terentius Regulus could have been that kind of character, trying to rid Bravil of the Skooma trade, but instead persecuting the group he mistakenly thinks is responsible.
That kind of character gives the player choices in how to deal with them. They can simply eliminate them, or they can attempt to redirect them along their original "good" path they strayed from. But choices make for more complicated quests, which is why they probably don't get produced.
The DB quest line could do with a bit more of that ambiguity, too. It starts off well enough, with any friendly fire accident triggering LL's visit, and the first victim being a rapist/murderer who's got away with it, but it was written for the intentionally evil character to find he's unintentionally doing good, instead of the other way round. I think it would have been possible to have it work both ways, with just a little more effort.
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Mods for The Elder Scrolls single-player games, and I play ESO.
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