Of course if someone is breaking the law the cruise line should be informed. My point is that the tour operator is accountable and not NCL, so it seems unfair to use this as another reason to bash NCL. That same driver probably took passengers from other cruise lines on the same tour a day after you left.
Yet for all the concerns, it seems you got in his vehicle again for the trip back. That means you were willing to risk your own safety rather than making an alternate plan to get back to the ship.