Also stuck on Sandoria 2-3 but doing the Bastok -> Windy section... I think it was because I talked with Ghrom by pure coincidence before going to the consulate (exploring around) and the cutscene from Savae E Paleade is not being triggered.
Her dialogue is "Good luck on your missions... ... stay out of trouble and follow the rules"
I thought I might be able to go ahead but talked to Pious and nothing.
Any help will be greatly appreciated. I propose instead of taking me to R1 to maybe increase me to R3
Ninja edit: Talked to Halver again and gave me the letter to the consuls again... came back to bastok and everything is fine