Here is a 'Pipe Dream'
Instead of a full govenmental system, we could have a Sherif, Marshal, Lord, or Sir type system. A max of 3 or 4 people elected (insert propper voting system here) to serve as the lawkeepers. There may be trials much like the ones in recent history, or if the Lawkeeper catches someone red handed, they may serve as Judge Jury and Exicutioner. How you ask

well this is where the 'Dream' part comes in; the elected people are given partial GM abilities, thus being able to issue real punishment. Whatever the masses decied ahead of time as justafiable punishments for different crimes. Such as being confined to the DR for a week, when they try to escape the respawn near the Death Gardian. Maybe a fine of 1000 Tria will be taken from them, You get my point (I hope).
The elected term would only be for a short period of 2 - 3 months. This way there is no irreversable harm done by an unjust lawkeeper.
Thoughts ?