Unlocking of modems or phones is not illegal as long as the IMEI remains intact. While it may go contrary to the terms of use by the providers, it is not illegal. In fact most providers would offer unlock codes if requested. i know AT&T, Vodafone and Orange would gladly unlock you BlackBerry is you tell them you are traveling abroad and will need to use it.
And Jailbreaking of iPhones has been made an exception to the Digital Millennium Act in the United States, making is legal though I am not sure it was illegal in the first place. Modifying a phone to run different applicaiton or software, which is legally obtained, is legal.
I don't know why some get the idea the Communication Acts makes it illegal to unlock a phone or a modem.