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Well remember that the goblins the PCs encounter are only part of the goblin warband attacking Sandpoint. So there's no reason why you couldn't add some guards and some more goblins to the scene. While the encounters as written naturally focus on the PCs' actions, we know from the text that there are fights between the guardsmen and the other goblins throughout the city.
In fact, when I ran the scene, I did add some more goblins to occupy Sheriff Hemlock and Father Zanthus during the first encounter. I didn't play it out as an actual encounter but used it to add atmosphere to the general picture. There also were guards nearby but those had their hands full as well.

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Also, keep in mind that until this event, there's never been a goblin attack on Sandpoint. The town's at peace at the start of the campaign, and so the guards aren't really all that vigilant. There's certainly guards at the festival, but they're likely not dressed in armor and might not even have weapons—they're essentially there as festival-goers.
The point of the first encounter is for the PCs to shine, not to help the guards defend things.

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My plan for when I run this is to have Sandpoint decide that they finally DO need some serious guards, and have put out feelers into some neighbouring communities to get some qualified applicants (i.e. the PCs). In other words, the PCs are showing up for a job interview, when the events of the festival break out.
I'm hoping this will solve the problem I had last time I ran this, that the PCs never felt any real attachment to Sandpoint (they ended up like Magrimar much more).

blindiebyrd |

I just ran the first part of Burnt Offerings last night and I was sure to tell the players that the sounds of battle were everywhere. I tried to make it as chaotic as possible by not using a map either so they didn't know exactly who was fighting around them, just who was fighting them. It went well.

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When I started our RotRL campaign, the first session had all the players in one group (after that we split into two groups, with two GMs). This meant that I had to increase the difficulty of the encounters somewhat. I wasn't too sure I'd got the balance right, so I also threw in a couple of ceremonial guards on the stage with the dignitaries. This gave me another way of keeping the challenge within bounds (as well as having goblins get distracted occasionally). While the guards mostly just looked after the VIPs, they did help to break up one group of goblins who had cornered a PC.

Connors |
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You may wish to have a look at our playtest report over at Enworld.
Basically, I DID have town guards, militia, merchant guards and even townsfolk doing things. I increased the raid a lot and narrated 'off-scene' actions by others.
I even came up with a very fast mechanic for the players to roll Towns Folk vs Goblins and some fun little charts to describe what happened.
I am sorry - I cannot picture all townsfolk doing nothing, inc the mayor, sheriff, etc. I don't care what the 'goal' of the encounter was - how could there be any respect for these heroes and leaders if they do nothing.
I had a goblin attack the night before on outlying farms, so guards were sent out of town to investigate and keep an eye on things. That left a smaller crew in town, but they still did something.
I had Sheriff Hemlock take most guards to an attack on the North Gate when the goblins arrived in the market square (I used the open area in front of the cathedral). He ordered others to guard the cathedral, along with the mayor and Father Zantus.
The PCs still finished the battle at the North Gate, helping the sheriff end the raid by clsing the gates.
How could PCs have any respect for these NPCs if they do nothing )especially considering some of their backgrounds).
Anyway - if you want to check it out, along with all attached docs, head over here:
Connors RotR Playtest

Aaron Gillespie |

This is something I've been thinking about as well. How to make the actions of the PCs outshine the rest of the guard so much that townsfolk take notice.
I like the idea of having some of the guards get called out of the city on other business (although I don't know if i'd make it another goblin attack as that kind of ruins the surprise during the festival.)
I also like the idea that the town has been peaceful for so long that the cops have gotten a little complacent. Maybe they're in ceremonial attire during the festival without any real weapons. Or something simple like a small baton just for show or if they need to break up a drunken fight or something, but no weapon that is going to do any real damage.
That could even lead to some interesting RP. The cops have egg on their faces after the attack, and need to step it up to compensate. The townsfolk have lost some faith in the police and turn to the PCs.
I also like the idea of the guards rushing to stop the goblins in one area, telling the townsfolk to take shelter in another part of town, and then have the goblins attack that part. The PCs are the only thing between the goblins and the majority of the townsfolk. That way, the townsfolk see the PCs as being the main reason they're alive and not filling a goblin's belly.
These are great suggestions. Keep them coming!