I thought so too. I posted an article on FR not too long ago about faux cell towers spoofing cell phones near military bases around the country intercepting calls and passing them on into the cell system. . . but no one knows whose they are. . . and what's being done with the cell traffic that goes through those "fake" or "unaffiliated" towers.
As a HAM radio operator, I’ve designed and setup my fair share of antennae arrays, and I’ve seen some antennae around cell towers that left me dumbfounded as to their utility. Oftentimes they were outside or actually on the fence surrounding the base which is against regulations.