Powder Gangers were criminals working off their sentence, I think they were even getting paid. Even if they werent they were still working off their time. Some even want to go back to NCR and give up rather then go along with Cook. America used criminals for road work and so on (depending on the state). Some states still do.
I would rather be out working then be stuck in a cell with another person for most of the day every day for years.
When you talk to some of the powder gangers they make it pretty clear that NCR justice is not always fair, and that they're pretty much using them for cheap labor. I know you cant always take criminals at their word but there still has to be some truth behind it.
Wait a minute why am I speaking out against the NCR all of a sudden? :banghead: