I agree with the others that technically, you don't have to high level to high level to run kingdoms and have mass combat...
BUT
low level characters doing such would have a really hard time do to their low mortality and personal strength. 5th level kings would not have the abilities to prevent nighttime assassination as every officer is the same level and has access to 5th level assassins. 20th level kings know of the 10 or so 20th people who can sneak into his castle.
Personally I'd have different Epic modules/books that scale down. Rules that are made for high level but can work are lower levels with certain limitations.
Epic: Kings
Epic: Contacts
BUT
low level characters doing such would have a really hard time do to their low mortality and personal strength. 5th level kings would not have the abilities to prevent nighttime assassination as every officer is the same level and has access to 5th level assassins. 20th level kings know of the 10 or so 20th people who can sneak into his castle.
Personally I'd have different Epic modules/books that scale down. Rules that are made for high level but can work are lower levels with certain limitations.
Epic: Kings
- Rules for mass combat
- Rules for running nations, organizations, kingdoms, etc
- Information of the changes the would have on the campaign
- How to run low level organizations
- Rules for superpowered characters
- Rules for epic magic and mundane skill
- Information of the changes the would have on the campaign
- How to play low level superpowered characters
Epic: Contacts
- Rules for personal henchmen and cohorts
- Rules for epic favors that grant information, influence, or skills
- Information of the changes the would have on the campaign
- How to incorporate low level contacts