After further reading, I'm not 100% sure my previous message is correct, but I don't think there is much differentiation between detainment and arrest, and reasonable suspicion vs probable cause in the handbook.
The only real mention of "detain" is saying you can detain a civ if they are "interfering" with an investigation, and if you notify them why they are being detained. I believe I have been detained multiple times when I was completely innocent, without doing something that could be considered as interfering with an investigation. I will be paying more attention to that from now on.
And, sadly, there is no use of "reasonable suspicion" in the handbook, which in the USA is generally the level required to detain someone.
Given the handbook says:
Let's take that serious and go through an example situation. Let's say someone is flying without a pilot license. If we look at the ticket guide we can see:
Let's think about this more carefully. Probable cause, according to the handbook, is when you have grounds conduct a search OR make an arrest. Now, if you were to send someone to jail, it's pretty obvious that you would have to arrest them. Yet flying without a pilot license doesn't actually provide you the probable cause needed to be able to arrest them. So it's a crime that you can be jailed for if you do it 3 times, but it's not a crime that you can be arrested for. You'd have to be arrested on some other crime that grants probable cause, and then you could finally get sent to jail for this crime.
Does this sound right? Does this sound like how it's intended? Does this sound like how it's actually played out on the server? I don't think so, yet if we accept your logic that people need probable cause to be arrested, it means that you can't arrest someone for these "Does not warrant probable cause" charges, and if you can't arrest them, how could you even ticket them either?