For the sake of roleplay, it's great for players to run their own outlaw systems. It's to makes sure that aedra worshipers are not with daedra worshipers, vampires and werewolves are not dominating armies, etc. ESO is also a metagame, so roleplay goes out the window, but that shouldn't be the case for RPers. I think it's best for ESO's community to have a simple outlaw system that allows for players to declare outlaws from their own factions. The community will settle with how the RP guilds will treat the system.
The outlaw system can work with the justice system, and is a buffer to any housing systems that get implemented in the future.
Here are my suggestions:
Emperor and Royal Guard:
All emperors have the ability to declare outlaws. They can set bounties and those players become enemies to others in the faction. Emperors can give outlaw rights to guild member ranks, who can then declare outlaws and pass on rights themselves. Emperors can also appoint certain guild leaders of other guilds to have outlaw rights in multiple areas of Cyrodiil.
Feudalism:
There is also the option for the Emperor to choose whether individual guilds can be in charge of certain areas of Cyrodiil. For example, a guild that owns Aleswell will be in charge of the Aleswell area, and the guild leader would have Emperor-equivalent rights within the area. Players who are outlaws in one area may not be outlaws in another. A notification will appear upon entering an outlaw zone.
Guilds will be in charge of their areas if there is no ally emperor crowned.
Just being able to declare outlaws is enough for RP communities to flourish. Accept what fits in the lore and reject the rest; and declaring daedra worshipers as outlaws, as well as pardoning individuals, such as repentant vampires/werewolves.
Edited by Firellight on January 16, 2015 3:05PM