Radios are often purchased with grant money, and federal/NYS grants require radios to be P25 capable (they don't need to have P25 enabled, just be capable of the protocol). So if the agency is spending their own money, they would likely gravitate towards the cheaper XPR option, and if they're getting "free" radios through a grant, would have to go with the APX or other P25 capable radios (Kenwood, EFJ, Harris, etc.)