I used to be a comm tech for one of the Federal natural resource agencies (but I retired from that job and have a good one now), and I must have spent hundreds of hours and hundreds of road miles trying to find out where unauthorized transmissions were coming from, with terrible percentage of success. There have been FCC actions against commercial entities who seemed to have no regard for who was authorized to use various frequencies... but it still happens. Not to say that programming unauthorized frequencies or modifying radios is solely done by commercial operations. In NV there seemed to be a continuing problem with 'off-roaders' having and using radios programmed for whatever frequencies. One memorable event was when one of our tac channels had two yahoos blabbering continuously about their routes and meetups, and when a well-meaning member of the agency asked "Who are you, do you need assistance?" - and the reply was "Go the ***** away, I paid for this channel!"
Or one ham in who thought it was OK to make a test call on one of our repeaters (using his callsign). I looked up who he was and made a polite phone call, one ham to another. He seemed to think that a single test 'just to make sure the radio was working on that channel in case I need it' would be OK. I had to explain it was NOT OK and if it happened again I'd be dialing a different phone number. Perhaps it wasn't the right thing to do, I don't know, but that was the ONLY time I did that, and hopefully it was the only time the dipstick did something that stupid.
"Only two things are infinite, the universe and human stupidity - and I'm not too sure about the universe part."
- Albert Einstein -