Yes, it has to be turned on. I suspect its a radio sitting on a shelf and mostly used for monitoring, which someone forgot about, and it never got the LLA update.
If the radio is not permitted to register/affiliate, it won’t transmit or receive.
I'm guessing it might be a hand-me-down hand-me-down.
In the earlier days of MARCS, one of the ways rural counties were enticed (bribed) to join the expensive MARCS project was the gift of used state radios that had been decommissioned but were still usable. Sort of like the Highway Patrol cruiser with 90,000 miles on it gifted to a village department with one 25 year old Dodge Diplomat and three part-time officers. Bonus points if the car came with a functional light bar.
The Jackson County Sheriff's Office got a bunch of these radios over the years, primarily from ODNR. When MARCS waived the user fees for sheriff's offices, that sealed the deal. JCSO switched to MARCS, and that action slowly pushed everyone else in the county to sign up.
Fast forward to now. All of those first generation radios have been replaced with new equipment. The twice-decommissioned MARCS radios were then given to local volunteer fire departments to "help them out". I'm guessing at least some of those radios were not capable of receiving the LLA updates -- or someone simply forgot they existed.