Is it possible to unlock an iphone 4s without it being activated?

It's currently Jailbroken, running iOS 5.1.1., Cydia 1.1.6

No, the carrier can only unlock.
if you need a factory unlocked iphone, email me i have a few for sale or trade.

Yes you can.

It is possible with an official carrier granted unlock but not all carriers are supported. You can read details about this method here: http://www.fastgsm.com/en/page/how-to-unlock-iphone