Can't they just skin the app and license it to these companies?

They just need an enterprise account for each company (or police force or whatever) to distribute the app internally. If anything this just enables them to charge more assuming they've proven out the capabilities and the ROI.

Then each company can distribute it as their own app internally - all within the guidelines of the enterprise TOS.

If just skinning it isn't enough then they can create an SDK and have then consult each company to develop its own app that uses this SDK as part of it. It isn't like Apple restricts enterprise app from using other services and APIs within their own apps.

I don't think the TOS are particularly unfair or hard to work within in this case.