No, the issue is tihs. Is the FCC's authority EXCLUSIVE of all others.
The FCC has the authority to issue and regulate licenses and use of the air waves by unlicensed persons.
However several states have laws which HAVE withstood the test of the courts limiting where and when said radios could be used. Usually these laws regulate receivers, not transmitters.
For example: Possession of a radio receiver capable of receiving police transmissions while in comission of a felony is against the law here in Michigan, unless you are a licensed ham radio operator, or police,fire,ems (public safety) officer, in which case I'm not sure.
Possessing of such radios by convicted felons is also limited, with exceptions, and there are several other restrictions, again with the execptions. Full law upon request or www.michigan.gov and dig it out