From research I have done several times in assisting with licensing and spectrum issues, and from tracking frequency and system changes in counties local to me, I see another reason why there are still a lot of licenses "active", at least in the FCC DB.
At the administrative level in public safety / local government, and even companies like the one I worked for and took lead in narrow-banding and audit on their systems a few years ago, much of that happens just because "that's what we have always done". So, in more detailed example, in several instances around where I live, the county Sheriff hasn't been on LB for years, many years, don't even have radios in cars or working base stations anymore. However, on the administrative side, when the renewal comes due, they just see a radio license, they renew it and move on. There isn't thought about... "Do we still use this frequency?", they don't ask, maybe no one there knows without asking the radio shop, and usually there is no one there to discern what is what anyway.
So, many of these just get renewed because a renewal notice is sent. I asked, and that was the answer I got in a couple of cases with LB licenses.
The company I helped 4-5 years ago with their VHF was simply going to renew an IMTS and Paging license. The IMTS base had been off air for 6-7 years, and the paging base had not been used for at least 4 years as the encoder blew up and they were switching to employee cell phones anyway. So there again, just do what we always did. I subsequently cleaned that up, cancelled the licenses, narrow banded the VHF repeater they had, added a couple new splinter itinerants so they could stop using 154.570 illegally in 45 watt mobiles...and got everything on track. The repeater has extremely good coverage (even in narrow), but sadly they have few mobiles installed now, no base stations/remotes being used or hooked up and it's status as backup system to their cell phones is about lost, and no one knows what to do, or what they have since I left. Sad.