Transmitting outside the HAM bands...
...has been around forever. The need to modify a radio to transmit in these portions of the band would only seem necessary if the radio owner wanted to use their radio on a commercial freq at work. For instance, both of the railroads I worked for(Cumbres & Toltec Scenic and the Georgetown Loop)both use VHF radios to communicate. I could modify my HT to be able to transmit outside the HAM band while working for these companies(I already can receive) in order to use my own radio. Is it legal? No. The radios are not type accepted compatable, according to the FCC. Is it ever really necessary? Not likely. Like Dave said there is more often better coverage with the HAM bands than with the services outside the HAM bands, so getting emergency assistance is closer within the HAM band than outside it.