No, I reckon the shepherds didn't have licenses, bless their hearts, it sounds like they might be thinking they're resisting oppression. Or maybe they're in a full-blown war.
Why do you need permission to communicate? What difference does it make?
Not wanting to offend anyone's libertarian concepts, but like someone said on a post this morning, it seems to make sense for people to voluntarily associate themselves together for convenience, common goals, mutual purpses, etc.
It is common courtesy, even decency, to follow the sensible rules that we recotgnize as a benefit to us. You can drive your car without a license but you can't ignore the common rules of the road. It is hazardous to your health to drive the wrong way on the interstate just because that might suit you better. Someone might consider a stop sign to be a nuisance but it would be wise to look before running through it because you might get creamed by other drivers who are following the rules. We follow the traffic rules without a second thought because it is in our best interest, although we don't often think of it in those terms. We know the rules because we studied the license manual or because someone taught us the rules when we were learning to drive. We become more proficient drivers with experience of driving. It is necessary to watch out for the other guy if only for our own safety.
I don't mean to be patronizing here.
The ham radio frequency bands are crowded with hams, all trying to establish communications. It isn't that easy. The frequency spectrum we have is all we are likely to get because there is intense competition for every little speck of the RF spectrum, and they ain't makin' no more RF frequencies. Certain common sense rules are necessary for everyone's benefit. We learn the rules by studying the manual and by operating experience. We pass their silly little test and we get a ham ticket, much like getting a drivers license. We get on the air and learn by the experience of operating our rigs. It's fine to have some ham gear laid back for the hard times coming, but when we pull it out of the box the next question is going to be, "Now what the hell do I do?" Like other tools, a rifle for example, we don't need to wait until we need it to learn how to use it. We need to get the experience now because the time will come when that experience will be invaluable.
It makes sense to me to get the ticket now, get on the air and maybe have some fun in our spare time, if we have any, while learning how to communicate. It is simple and cheap to get the ticket. There is no code test, no psych evaluation, no background check, no age limit. Anyone can do it. But you will have to be willing to be on the "list" of ham operators.
You might operate without a license but I promise you that some well-meaning good ol' boy ham operator is going to report you and you will receive a call or letter in the mail notifying you of blah, blah, blah. Or, worse yet, some of Big Brother's little $h-T head jack-booted emissaries will come knocking on your door. Just like driving without the government permission slip. Sooner or later some cop is going to swagger up to your driver's side window in his polished boots, military creased shirt and mirror sunglasses, ask in his imperious tone for your "Papers, please." and he is going to write you a ticket and cause you a lot of hassle, trouble and fines.
Yeah, I know, this is a long-winded post, but before I go: ham radio operators are a tight-knit group, helping each other by sharing experiences, tech advice, and ham gear. There are numerous special interest nets across the bands. Regular on-air meetings, often daily, on the nets, getting to know each other and sharing life experiences. We know whose wife is sick, who lost his job, who went fishing, and on and on. These nets tie us together in a special way. If we can get an FSW net up and running it will tie us together in more ways than one. We need that. Why not join us "on the air?"