Using a Motorola SmartNet for example
If a user attempts to transmit when there is not a frequency available, they will get a "tone" indicating the inability to transmit.
The radio system has a " user priority " system.
Meaning, each agency/user belongs to a rank system giving them priority over other users.
In Sacramento County for example ( WNYR751 ) The Sheriff's Department has priority #1
A Deputy's transmission will override a Bus or Garbage truck's transmission.
In the 8+ years WNYR751 has been in full service, I have always been able to transmit.
Radio management is key. The number of talk groups available to a user and total number of actual radios in use is imperative. Those that maintain the radio system have a variety of tools to monitor system status, usage, xmit time, etc etc
Currently in Sacramento County, the #1 user of the system is the Sacramento International Airport shuttle service. Granted their transmissions are very short, they xmit more than any other user of the system. That being said, The shuttles have the lowest priority and will never prevent the Sheriff's Dept. from getting on the air.