The 'licensed bandits' are the local clans, usually. The usual thing is for a clan to hire out their people as 'guides' to travelers, and in return for a small fee they make sure that one does not get robbed or bothered. (I had to explain this concept in detail in the TFT campaign I'm in, playing a 'bandit chieftain'.) It's what I think would be described as a 'protection racket', in 1920s Chicago. The clans also serve as informal police, as they like to either co-opt or exterminate interlopers - 'unlicensed' bandits and brigands - as these are bad for business and cut into the profits. They all have working agreements with the road guards, to whom they pay a percentage in return for getting a segment of the road to work on; in return, the guards refer travelers to them as guides as the locals will know where to stay, where to get supplies, get the cart wheel fixed, and where to buy things. The local clans are also the vendors of all these things, so for them it's vital to get the customers to their wares with their money pouches intact. Lots of robberies are bad publicity, and so are dealt with promptly. The guards will help with this, as the local clans are all taxpayers, and so can call on 'the cops' if there's a problem. The clans all have districts where they are active, and will pass travelers along from one to the other in order to make sure that everybody gets a chance at the money.
Think of a combination of Stuckey's, the mob, Border reivers, Howard Johnson's (shows how old I am!), and the auto club all rolled into one. The Holiday Inn courtesy van, full of armed commandos...
'Unlicensed bandits' may very well be down-on-their luck poor people, or equally desperate player-characters. Either way, if they don't have the local connections they will be hunted down and wiped out - if they don't pay their fees, that is...
I would indeed think that one could run all sorts of fun adventures based on the roads; see also Sergio Leone. (Watched "A Fistful of Kaitars", last night.) Or Morse might pull up in his maroon and black palanquin, for that matter...
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