While I'm not very familar with Pathfinder, It would be pretty logical that people in political positions without much opportunity for direct conflict would be fairly low level.
Adventurers reach higher levels quickly because they take huge risks, while others generally do not. Retired Adventurers are kind of in the middle, usually, the kind who await a large score so they can just settle down and live comfortably or get famous enough to be granted Lands and titles by nobility.
Generally speaking, unless someone is a retired badass adventurer, lvl 5-10 is about the most you'll see from people in positions of power. Their day to day responsibilities usually prevent from gaining any meaningful xp.
Now, casters usually have some means of conducting magical research to gain xp without having to go adventuring. So magic users will generally be higher then non-magic users.
Career soldiers will usually be a little higher then non-soldiers, and most nobles will usually hire an elite bodyguard or 4 from adventurers who've gotten tired of risking their lives all the time and want a more stable life-style.
It also depends on how much conflict a land faces. A commoner in a area that basically never experiences threats that they fight off themselves would probably remain level 1 their whole lives, while commoners who occasionally defend themselves from bandits or monsters might get a couple levels by the end of their lives, assuming they aren't killed.
Back in 2nd edition DnD, almost everyone got followers and a stronghold at around 9-10, and that's where most people stopped, since you were already at the peak of what the cream of the crop could achieve, and for non-casters, that's pretty much where your personal power stopped increasing.
3rd, despite it's more focus on higher level campaigns also kept the same overall ideaology, where the vast majority of people were under lvl 5, with retired adventurers or casters getting up to about 6-12. People over 10 usually account for less then 1% of an area's given population. While people 5-10 are usually only about 15% or so.