All sorts of complicated gangs, interest groups, and rebel armies... various organizations occupy those places, effectively replacing the authority of the Planetary Government.
Their relationship with the Planetary Government varies; some are in opposition, others have a superior-subordinate dynamic, or are either managers or the managed... but whatever the role, there is a certain understanding between them and the government: "I respect you, and in consideration of your face, I'll find a way to pay the taxes. Don't meddle in anything else."
Of course, the Planetary Government is ultimately the strongest, uppermost, and most legitimate force on the planet. As for that so-called 'understanding,' it solely depends on whether the Planetary Government wishes to maintain it.
