Depends. Various parts of Europe have bands that can be used licenseless and allow data, e.g. in Germany there was somewhat of a community doing APRS-over-CB (past tense because I haven't kept up if thats still a thing).

Except under emergency situations, which are the cases we are talking here.

i always wondered if in case of natural disaster/war the state does really have the time and resources to chase unlicensed use of radio frequencies