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There's some weird incentives though. Merchants benefit from high economics and low class relations. So in theory the Merchants have an incentive to put class relations in the sewer, meaning their own members often can't buy the raw materials they need. Which obviously is a dumb thing for the Merchants to do.

So it's a combination of what guilds are strongest and what incentives those guilds face.

Most Guilds just try to elevate their positive metric to legendary, though, since that has no downsides.