I think the state is also looking at management of a state wide system. It would be difficult to track all the users. Trunking Systems have high maintenance cost. I think if they just have plain regional plan or systems, it would be easier to management and cost.
For example, you take Colfax, Platte, Merrick, and a group of counties that are is the same area. They would have High band repeater for their own use but would have mutual aid repeaters in each county. Your maintenance and radio programming is much less.
Then in Omaha/Washington, 800 trunking would work because of the people with tax base to pay for trunking system maintenance. Also they have the radio traffic to need trunking.
I drive through Dodge, Colfax and Cuming Counties Deputies hear only a couple of radio traffics an hour unless it is Friday night or Saturday night. That would not require trunking in my mind even if you put Fire on it. Fire Talk groups on trunking for fire grounds are almost against their associations believes and wants.
With peoples concerns about regional neighbors, Consoles can patch a lot of stuff together and it is proven in Lancaster, Sarpy, Cass, Douglas and Saunders come to my mind.
Only my believes.
Scanner Nut