The same guy who made Reneers Crime overhaul for both Oblivion and Skyrim should probably consider this...
I just found the Oblivion version and that had the guard arrest NPC feature that I'm surprised the Skyrim version lacked.
I know NPC's don't often attack people 'cause the NPC AI didn't program many thieves and hostiles and such, so it makes sense that Bethesda didn't add an AI package to arrest NPC's.
But I still think this would be pretty neat little attention to detail type mod if anyone wants to have a go at making it.