NO there are many agencies that are using unlicense channels for regular -ops - on purpose - period
The licensing situation is complicated. Some police departments have entered into leases with auction winners for the use of old paging, IMTS, and VHF public coast channels. In these cases, there might be a lease noted on the FCC license, or the license might be "market based."
47 CFR 80.373 (g) details 4 on-board UHF repeater pairs that use odd splits. These are authorized for shipboard communications.
HTs/ Repeater
1 ..................................... 467.750/ 457.525
2 ..................................... 467.775/ 457.550
3 ..................................... 467.800/ 457.575
4 ..................................... 467.825/ 457.600
That still doesn't explain the 468 MHz use. IMSA typically coordinates the entire block of MED channels. Mobile repeaters (Micor mobiles with a PacRT box and duplexers) on these frequencies used to be very common, but they were on the traditional 10 wideband frequencies, not the narrowband interstitials. The mobile repeaters (MO3) would repeat both the base frequency (463) and one of four 453 MHz low power frequencies used by a full-duplex (but not repeated) low power APCOR. As good a guess as any, maybe one of these things was surplussed and got re-crystalled and "retasked"? And, maybe an entrepreneur self-coordinated and decided these 12.5 kHz offsets weren't used much and no one would notice?