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Chapter 2: Tools / Building Items / Concept and Role

Comparison

Source Gamemastery Guide pg. 82
First, take a look at similar items. For example, if you want a permanent item that lets someone fly, look at the broom of flying, which moves of its own volition to a location and thus can’t be used to gain a huge advantage during combat, and winged boots, which can. This will give you an idea of the right level range and the different specifics and limitations of existing items. You might even be able to just adjust one of those a bit to get what you want with minimal work.