There is an illusionary calm to the Sea of Stars, an impression that a Pax Dracona has ended war and conflict, nothing could be further from the truth. While under dragonrule, open war between states has become vanishingly rare, as such invites war between the Draconic houses, so armed conflict is waged by other means: raid, skirmish, reconnaissance in force, chevauchée, backing of rebel factions, hiring bandits and pirates, and other such tactics. Life can be very dangerous in the borderlands between two ambitious realms even if war is never declared, in fact, it may be worse than war if such raiding is left unchecked.
Those who raid often do so under some vague authority or authorization from the powers that be, though the legality of such things is questionable at best without a formal declaration of war. Privateers operating under a Letter of Marque, soldier on an extended “scouting missions”, such actions tend to dissolve into raids, counter-raids and reprisals. It is a messy business when soldiers act as raiders and looters, they can quickly become barely distinguishable from bandits and brigands without a strong commander who can maintain discipline.
Bandits, robbers and pirates are there to get money and goods, rarely they have some other purpose as well, but in general, they are are very focused on the money. They usually operate in small groups or bands, it requires an exceptional leader to gather together multiple bands into a large group (or, for pirates, ships into a flotilla) as the bands tend to be very idiosyncratic in their organization and, especially, in their leadership.