I think GTR8000 gave an excellent response to the question about why a jurisdiction may or may not upgrade from Phase 1 to Phase 2. I'll just add that part of it is timing: If you just completed a Phase 1 system in ~2013, it had plenty of capacity for the foreseeable future, and you were still making payments on it, you probably weren't going to upgrade to Phase 2 in the near term just because it became available and was better.
In 2020, if a locality is just now replacing an antiquated EDACS radio system, or an old conventional system, with a new trunking system, then it makes sense for them to go right to P25 Phase 2.