My interpretation of the question is "why is the Baldwin County fire simulcasting their P25 on VHF analog" — and the answer to that is "cost".
P25 digital radios are expensive, and not every department has the money to purchase those radios. There are still people, if not entire VFDs, still using analog radios and so they have to be linked to the AIRS network so everyone can talk to everyone else.
From what I've gleaned, most of the analog users are north of I-10, in the most rural departments like Lottie, Tensaw and Whitehouse Fork. But a bunch are also in Fairhope, which despite being a big growing city is still dependent on volunteer departments who probably have limited resources. Until that changes, the simulcast of the 911 channels and a few local repeaters will continue.