Precisely, my friend! And that - - - - they really are only those cities and towns that members of the Fellowship of the Ring visited across their story - or encountered characters who hailed from certain places.
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Also, to the thread in general, to add some more to it, we also have to add-in the nature of Tolkien's mythpoetic writing process as using the conceit of a frame narrative. Frodo and Sam first write the LOTR - and Bilbo Baggins's translations from Elvish amount to "The Silmarillion" - and the latter also writes both versions of "The Hobbit." Merry and Pippin add what details they may and move the text to Gondor. Then Findegil, King's Scholar, likely during the reign of Eldarion - meaning, after the reign of King Elessar II / Aragorn and Queen Arwen Undomiel - edits the text after the fact.
Two things come together here:
A- Tolkien's sense of historical Time - what is recorded, what is lost, and what happens to general "common knowledge" once those records are lost. In a mostly-medieval-styled society, where many of the populace are illiterate and cannot read or write but who rely chiefly on the passing of tales around campfires, the singing of songs, and overall oral tradition, you have very few "record-keepers" and "curators" of "lore" save in some fixed places. Findegil is the only post-WOTR frame narrator / editor Tolkien tells us of- so that also greatly localizes that preservation in 1 single person. Findegil is our closest approximation to the medieval monastic system in Europe where monks recorded and embellished all sorts of texts and stories.
This has a dramatic impact on how we understand mapping. Thus:
B- Sense of space. Tolkien's sense of how medieval - and other ancient and pre-medieval peoples - understood the world in which they lived. To the Greeks, Greece / Hellas was the center of the World - the heart of civilization - and to their east were non-descript lands, dominated by Medes and Persians, and to their north were the barbarians, and to their south, more barbarians (*the Greek sense of "barbaroi" literally means those who do not speak Greek, for they sound like "barb-barb-barb-barb" gibberish to the Greeks who do not understand their language), and to the west, the flat World ends beyond the Pillars of Hercules / Straits of Gibraltar where Spain and Morocco yield to the Atlantic. Herodotus did some expanded travels- and all sorts of outlandish tales. They were very good at "filling-in blanks" themselves with tales of mythological encounters they believed really happened (*hence, the Lotus-Eaters, etc., in "The Odyssey," and Colchus very far away with the Golden Fleece in the "Argonautica").
They had zero conception of China - or Asia more broadly - or of northern Europe - or of Africa - or of the Americas. Their sense of what the World was proved much confined by their geography. Oceans, deserts - including the Sahara - and great mountain ranges populated by hostile nations - will do that to a people who must rely on horses or just sheer marching to get around anywhere. Of course, eventually, Alexander the Great expanded their knowledge eastward as far as India. Rome expanded their knowledge northward, at least as far as the Rhine, Teuterberg Forest, the Danube, and Hadrian's Wall in England.
It is said that the Numenoreans explored much of Middle-earth with its ships - and that's interesting. It's as if Tolkien puts the "Age of Discovery / Exploration" a bit before the events of LOTR in the Second Age. But when Numenor falls, it's lost - and along with it, the maps - whatever maps they had. To contrast this, much later in the Shire, there are whole communities of Hobbits who have never left their home villages and who regard Hobbits from any other village with great suspicion: extremely localized cultures.
Which brings us back to our sense of Time and lost knowledge, back to A.
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What may we interpret? What facts / or inferred facts might we glean?
A- That Findegil himself was not very well-traveled. Plainly, he never went to Rhun or Harad or Khand - and not even bothered to map all the cities of Rohan. Also, since the only resulting text is "The Red Book of Westmarch" - copied and re-copied and re-copied again - we only know of Edoras because Aragorn and Gandalf and company went there, of Helm's Deep because they fought there, etc.
OR- that the original maps were far more extensive but were lost to Time.
B- That Findegil - as a Gondorian with an extremely long historical grudge against the East and South - even when Sauron was not interfering with them due to losing his ring-finger and going into hiding - is a biased and unreliable editor. He has plenty of grudges to nurse against Gondor's enemies as a Gondorian, "history is only written by the victors," etc. etc. etc. We would never know from him, for example, if Gondor did anything to provoke the Wainriders, etc. etc. etc. Gondor did have a phase where it was very interested in conquest as far south as Umbar and at least out to encompass the inland Sea of Rhun - and I'm not always sure that was "a good thing" - as Numenor's own colonization history greatly places that behavior into doubt in the lore.
It does make me wonder if, when Sam thinks about the fallen Haradrim soldier, there's this:
"It was Sam’s first view of a battle of Men against Men, and he did not like it much. He was glad that he could not see the dead face. He wondered what the man’s name was and where he came from; and if he was really evil of heart, or what lies or threats had led him on the long march from his home; and if he would not really rather have stayed there in peace – all in a flash of thought which was quickly driven from his mind" (LOTR, TTT, 661).
I think Findegil wrote the "all in a flash of thought which was quickly driven from his mind" to de-emphasize the moment because, well, he's Gondorian (661). I really don't find myself liking what I interpret as Findegil's editorial influence on the Hobbits. I love it when I can tell it's Frodo and Sam or Bilbo writing; Findegil I have little use for, LOL!
Do Boromir and Faramir repeatedly name "the cruel Haradrim" - or did the text originally say "the Haradrim," and Findegil added the word "cruel" to add greater emphasis? (FOTR, 245; TTT, 678). That's yet another example where the - reader - not Tolkien - gets to decide or imagine what it means. Another ambiguity! I choose, for various reasons, to interpret it as Findegil's annoying voice that really does not help Aragorn's line of ascendancy make peace with anyone after the WOTR, in my view. I'm glad he's not Gondor's chief Ambassador or diplomat!
*This is all very important for SSG to portray the East and South humanely - as they did in Dunland - and create some wonderful characters as they did before. I'd also invite them to reintroduce some elements of the Maiar also; the Huntsman played an excellent role in Enedwaith and Dunland, and I would love to see that sort of thing continue! The Valar certainly did their best, in their own small ways, to confront Sauron's influence, and I gently disagree with my friend TesalionLortus RE- Rhun and Harad on that subject. In fact, I'd say the Devs are - obliged - from the Chayasir storyline in Dale-lands and the Haradrim prisoners in North Ithilien and Jajax and his brother in Umbar to further the storylines they have established. We also still have a wild-card in Ayorzen. I'd further remind us that King Elessar II's current efforts center on making peace - though there are some wrinkles from the Gondor Allegiance storyline to sort out. I'd especially say that, generally, every single country in the world has it's own minority / detractors / resistance, and those are either usually stamped out, forced underground, or resist more quietly - or vote in democratic systems. But seldom do you have 100% agreement on anything of value - and doesn't have to be outright "we oppose Sauron in principle"; it could be as simple as, Noble A doesn't want Noble B to have power over him, and so Noble A decides to side with Gondor to dispossess Noble B and gain Noble B's authority, etc. There are plenty of complex avenues to play with!
But when we went through Dunland, in the context of LOTRO, it was plain to me as the player that we were dealing with people, with human beings, and not with some over-washed horse-blinders view of a Findegil. That's what I'm after in the East and South, etc. To maintain that level of writing quality. More recently, Lhan Garan in Swanfleet took the Chayasir route- as flight from disaster or from unsafe living conditions looking for better lives is yet another thing real people tend to do. The "Dunlendings" are not some generalized, over-washed term reduced as Rohan's enemies and just mobs to fight for slayer deeds. The Devs gave them a deep level of humanity I think Tolkien himself would appreciate it- and they are very wise not to hearken to the editorial pen of Findegil when they do so.
*Another case in point: I've just learned that I, myself, am very biased against Findegil! I guess that's because I generally dislike it when a narrative gets filtered through only 1 single voice that determines all else - and what I admire about LOTR is how Tolkien has all these different voices coming together and the many unfolding narrative depths and meanings and interpretations of those meanings we can draw from them! :D That you have Findegil - but you also have our five Hobbits - and you also have the High Elves before them, etc. I also think it's because I've read many Classics and some medieval texts and am aware of where that pattern comes from, and so I tend to look at how those patterns mirror each other between irl mythologies and writings and how Tolkien echoes those in LOTR.
C- That Findegil wrote the Appendices - and so, again, anything about High Elves or ancient history was written long after the fact by this Gondorian scholar in the Fourth Age. That also explains how LOTRO itself becomes possible with our conceit of the player-character as a heavily involved adventurer: Findegil never knew a thing about [us as players]; it simply fell from history and his recognition.
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So, in short, with mapping, Tolkien gives us:
1- A far more limited scope / sense of the world of Middle-earth transcribed by persons who either did not travel to every single town and city or who otherwise once possessed such knowledge, but it was lost.
2- That sense of historical depth and Time and how Time wears away at knowledge, including knowledge of certain tales and storytelling that grow and shift depending on who tells the tale. This also helps mirror the development of myth. Time also wears away "how to" build certain things, how to do certain kinds of tasks, and general knowledge of place / sense of the map and of what one's World is.
3- That sense of how . . . - who - the writer, or editor, or historian is can really affect the way the narrative comes across to readers. Tolkien did a masterful job at mirroring a medieval oral and record-keeping tradition that, like "The Song of Roland" / "Le Chanson de Roland" tends to be very one-sided and written by the victors and often over-embellished to favor one's own side over the other sides.
With Findegil: imagine the entire surviving history of the World getting filtered through one single biased editor - and that single text becoming the sole source of information about said global history. All of it- from the icy shores of Forochel to the jungles of Far Harad, and from the shores of the Sundering Seas to the Orocarni Mountains far to the east of the inland Sea of Rhun.
Tolkien's sheer genius? That it all ultimately came from his own brilliant head IRL - with all the responsibilities he shouldered in his daily life. He successfully mirrored the way history is written, recorded, passed down, and lost, and he successfully mirrored how our understanding of the world changes across time - as well as how we recite, pass down, and then record myths - and how those tales also shift across time. Remarkable.
I'd ask two things of the Devs:
1- I know you're already probably keeping most of this in mind developing the game. Please keep up the great work there!
2- Please do not, under any circumstances, have us learn of Findegil - and do not have Findegil meet us. I don't even want to meet him as an infant. No, no, no, no, no, no, no, no, no - a no for each Fellowship member and Ringwraith. Also, if Gandalf or Aragorn or any Fellowship heroes happen to write down our "player-character" deeds, have them burn-up in a great fire; make them inaccessible to Findegil. Then, LOTRO's narrative consistency broadly remains intact with its relationship with Tolkien's writings.
Cheers! :D