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Skyrim has a large numbers of cities and towns located in its vast map. Skyrim is dominated by 9 holds, The Reach, Whiterun, Eastmarch, The Pale, Falkreath, Haafingar, Hjaalmarch, The Rift, and Winterhold.
Each hold is governed by a Jarl and have their own guards and bounty systems, meaning that you can have a bounty in one hold but no bounty in another.
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