i thought all npc were lvl 20?

Well since i have been playing factions and got to cantha all the npc i have fought have been lvl 20 and up.
Came out of senjis corner this morning and there was loads of lvl 15 vermin everywhere.
There was so many infact i couldnt possibly of missed them on my trip to senjis corner.
And they are only in groups of 4 compared to the usual 8 or so that i usually have to fight off.
Have they decided to try and make the game a little easier already or did i really miss all the vermin the first time?
Im sure i have seen it quoted a few times on here that all npc will be lvl 20 once in cantha