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Do also know that they have a respawn cooldown, around 30 mins of game-time. Meaning - you cant just constantly find them as their own and their spawn chance is somewhat low. It took from me quite some time to gather these packs. You may decide its not worth it, but once again - totally up to you.
Edit: You also DONT need to save survivor from them to get their packs, just kill them. But saving him will give random survivor reward + progress towards related achievement.
it should also be noted that the best way to get the packs from the badguys is to just burn the ♥♥♥♥♥♥♥ to death with molitovs. you dont need the survivor to, um... survive in order to get the packs, and it saves the danger of getting shot, and even keeps the noise down a lot (potentially you can get the drop on them and they never get a shot off). you may have to finish the gunners off while they are on fire but a few arrows will do the trick nicely without getting burned yourself.
https://steamuserimages-a.akamaihd.net/ugc/852722377422765232/42B378506B7DB001D43ED3EAF81DB70239C45692/
Usually I can find them but I cannot get any pack from them, I have already hunted like 40 - 50 of them but I have obtained 3 packs only.
I can't get to 5 to craft the silent pistol, not even mention the 50 needed for the outfit lol, I have this bounty active but it makes no difference.
There's also a hidden timer for world events to prevent them from happening too close together and thus feeling repetitive, so the black-clad soldiers only show up about once every 40-ish moments of playtime. Once you trigger an encounter, you won't get another for another 40 minutes, which can make grinding the 50 packs take a lot of time.
PD: I have found more of them so it's not a bug whatsoever.
You may be able to get there if you find the way to Old Town on your own, but I think that is story related.
You start in The Slums district where The Tower (with Brecken being in charge is). They will not appear in The Slums. Rais' Men do, but they are orange and green clothed, as mentioned already.
I can't accurately describe how far into the story you need to be. I'd guess at least a third to a half of the story quests, but again, it may be possible to get to Old Town by another method. You'd have to imagine how to get from one sector to another, and it might be a very dangerous attempt.
In the interim, the story requires you to deal with Rais. He's a bad guy, so he may double-cross you, as you might guess. To survive, you might have to escape. To do that might require certain escape route. The type of thing you might use to escape, might lead to another sector.