The original channels were a certain frequency gap (I think 50kHz) apart from each other. Subsequently introduced channels, after radio receiver circuitry became better able to filter out neighbouring frequencies, were introduced in between them. Ch16 is in the middle of the band covering the original ~32 channels.
Another measure to maximise range on the emergency/ calling channel is the mandatory reduction in transmission power on the neighbouring channels, so as to minimise interference with feint transmissions on Ch16. So Ch15, Ch17, and the two higher-numbered channels that sit between them and Ch16 on the frequency spectrum are all limited to 1W of output power by law - and by your radio.