I think your is statement is inaccurate to the point of being intentionally misleading:
Many devices, when running, and in some cases even if turned off but connected to their battery, will ping cell towers (maybe even BLE/Wifi) and get triangulated by the network infrastructure (such as cell towers) without actively broadcasting the GPS location.
That's why I don't quite understand why the gubernment needs to have finer grained data (esp around the US/Mexican border). Precision location info would only be needed if you need to track people in densely populated areas.