Sounds about right to me, Al.
In my games, most people are 2nd-4th level. 1st level is for those with no experience, apprentices and such.
I'm against the idea that PCs are inherently superior to 'puny NPCs' (except statwise and, most of the time, levelwise, of course).
What this means :
- Joe farmer : Commoner 2-4 (depending on age)
- Bill farmer, Joe's son : Commoner 1
- Average town guard : Warrior 2 or Warrior 1/Commoner 1 or warrior 1/Expert 1.
- Average soldier : Warrior 2*
- Veteran soldier : Warrior 3 or Warrior 4*
- Elite Soldier : Warrior 2/Fighter 1*
- Average orc : Warrior 3 or barbarian 2 (a savage culture where fighting is commonplace = much combat experience)
- Average ogre : Warrior 1 or barbarian 1 (although this isn't really needed since they have a good base HDs representing levels.)
An adventurer 1st level fighter is a guy with much potential and a very good training, but with no actual combat experience. He'd better be careful or lucky if he wants to survive.
Or those, that means I don't send 12 orcs against a 2nd level party and expect them to survive. It keeps combat manageable and, IMO, more fun.
BTW, ogre barbarians are nasty. I like it like that.
* = Possibly one level replaced by commoner or expert depending on background.
Also, if I had designed the NPC classes, they would have NO BAB increase at all (except for warriors, of course). And they would get skill focus and other such special abilities.
YMMV (Big time)