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Re: Population and Power Scales in Greyhawk (Score: 1) by ek on Sun, January 13, 2013 (User Info | Send a Message)
In a way, I think this is deliberate from the setting's creator. The intention is not to define the world into gridlock, but give folks a bare bones framework, and free reign to run in any direction desired.
I was a teen when I got the GH box set (almost 30 years ago), and struggled to find a place for my own ideas. I see other folks struggle with it, too (one post mentioned the "disservice" Darlene did with all of those green hexes: the hexes made the land feel overly defined and civilized). I wrote this article to give a couple thought-experiments to break out of that non-existant constraint: as you point out, maybe 6% of the land is civilized.... If a DM wants it, then only 6% of the land (not 100%!) is controlled by the political entities of GH.