I am not a lawyer, so the advice I give you is based purely on my amateur knowledge of relevant United States laws, but this is the summation of what I believe to be true:
Distributing any copywritten work, in whole or in part, is illegal. The Ultima Online client and all of the data files distributed with the Ultima Online client are copywritten works owned by Electronic Arts. Therefore, distribution of any part of those data files, including a modified map, would be illegal.
Creating data files that the Ultima Online client can read, however, is not illegal. Nor is distributing those files, so long as they are original and you own the copyright to them. So, creating a purely custom map should, in theory, be legal.
Modifying the Ultima Online client, on file or in memory, for the purpose of connecting to a different server, could be deemed a violation of the Digital Millennium Copyright Act (DMCA), as it could be construed as a means for bypassing a copyright protection mechanism (the encryption). The legality of this is questionable and thus risky at best.
Connecting to or hosting an Ultima Online server are both violations of the Ultima Online End Users License Agreement (EULA) and Terms of Service (TOS). Whether or not either is enforceable is questionable, however, and this is especially true since it is reasonably possible to install and use the Ultima Online client (albeit a very old version) without agreeing to either document (or so I have heard).
In the end, it leans far enough into the gray area of the law that most services with something to lose (such as your Internet Service Provider (ISP)) will not be willing to support the endeavor and will likely cut service as soon as they receive even a modestly threatening e-mail informing them of your activities. Blizzard and other companies in the industry have been known to send such e-mails in the past, and they do usually result in the ISP discontinuing service to the client found responsible for hosting such a server.
There have been rumors of court cases involving Origin/Electronic Arts versus a third-party Ultima Online server operator. In such rumors, the third-party has usually won, and this is used by many to legitimatize the claim that Electronic Arts is either unwilling or incapable of prosecuting a server operator. However, after a moderate amount of research, I have found no indication of there ever having been a case, and fully believe the lack of offensive movement on the part of Electronic Arts is more likely in the name of financial conservation and company image.
To date, I have yet to hear of a single Ultima Online server ever being prosecuted or even threatened by Electronic Arts. That, however, does not mean it is legal to operate a server, nor does it mean they will remain passive on the issue indefinitely. The risks and rewards are left to you to decide upon.
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