To keep the game play "fair" a level cap of 20 was established for players. It is not hard to get to this level, so people in PvP have a chance to compete. NPC's often have higer levels than players but they are not the brightest and sometimes you can outnumber them. It is all about balance. The majority of high-end areas allow for paties of 8 people so they are capable of dealing with the groups of 28's that lie right outside the zone. A few areas allow for parties of 12 people, but this are among the most difficult of places to fight.
There are NPC's with levels even higher than 28, going up to 32. These tend to be the bosses and range in difficulty. A level 30 might be easier to kill than a level 26, based on how many people are in the party and if they were properly prepared or not.
Some high-end NPCs can even be soloed if you know what you are doing.
While many players are unhappy with the level cap of 20, it was simply practical for Anet to do, as there are not an unlimted amount of expansions and only so much content. Everything in the game can be accomplished with level 20's.
Another reason for this cap was that the developers wanted it to be about skill, not time played. And in many situations this is true.
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