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seeing as there's an arena in Galaxy City, I think they expect 7's and under to participate.
so your first class is 1-5. then 6-10, 11-15, 16-20 and so on.
you have a good point about 21s vs 22s. but maybe the cap is such that the 21-25 class is capped at DO level. After all, most 22's should not have SOs everywhere. Why should people have an edge because of high level alts, generous SGs or a Spelunking expedition to sell?
likewise, I bet 11-15 caps at the Training level. and I would't be surprised if 26-30 capped at DO level, too.
This gives 3 classes for training, 3 for DO, 3 for SO, and the 46-50 class has no cap. Maybe the 3 arenas are split that way: all matches in Galaxy cap at TO, Talos is the DO range, PI is SO+.
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I think it was stated that you cant PVP to 14 or 15. We dont know until it is released on test but...
Just because the zone has an arena doesnt mean the the suggested levels for that zone can fight in it.
It just makes it easier for all heroes to watch the action.
For instance on the test server I am sure the Galaxy arena will be a hot venue due to how close it is to Mr Respec. And the fact that all heroes from all servers can copy to test and have a Paragon Royal rumble.
I think the arena's in AP and Galaxy are there for convenience, more so for the lowbies seeing the battles then for participating in them.