I'll have to do some testing with an SDS200, but I believe the issue might have to do with TDMA traffic. Uniden never included a provision for FDMA vs TDMA in the band plan, i.e. no slots parameter.
I wonder, if you enter the correct NJICS band plan for Site 28, does it decode FDMA traffic? I realize there is little FDMA left, but I'm curious if it only has trouble with the TDMA traffic. If so, then TDMA traffic channel frequencies are likely being calculated internally by the scanner with no regard for any custom band plan you enter for the site.
Edit: Quick followup, and I know we're getting way off topic here, but par for the course on RR. I just uploaded a P25 site to an SDS200 using ProScan and cleared out the band plan (all zeroes). Uploaded that programming, and the scanner immediately started decoding P25 TDMA traffic with no issue. After a few minutes I checked the band plan via the scanner's menu and it was still completely zeroed out.
That leads me to believe that the band plan entered for a P25 in a Uniden scanner is all but useless. Probably doubly so for TDMA traffic.