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Been looking for Sam for ages now, level 31...... found him before when playing an earlier game. Now, I can't find him......I know he appears at random in a certain Inn, but he ain't around....
Well he will be in an Inn that you have already visited (as he appears in the next Inn you entere after Lv14). Go through your visited cities and have a good look around, keeping in mind that he may have wandered around a bit (eg going upstairs at the Solitude Winking Skeever). Also keep in mind that if you go outside while he is in the middle of a conversation with you, he may appear outside and stay outside of the Inn...
Maybe your game is just glitched? He isnt that hard to find as a general rule. Fyi there is an Expert Lv Conjuration spell to summon a Dramora Lord. I know its not the same as a staff, but perhaps you should look into that if you game is indeed Sam-less?