There is a limited amount of resources you can program into your radio. State agencies in areas where there are multiple P25 systems are currently trying to figure out this issue especially as there is a massive need to standardize on codeplugs for those agencies statewide. For example in Texas there are a handful multi-regional (muli-COG) P25 systems...TxWARN, GATRRS, and LCRA but then there is also a bunch of regional P25 systems like AARRS, HOTRRS, NTIRN, GMRS, LRGVRRS, CBRIN, SETTRS, CVCOG and then a bunch of countywide/municipal systems like Lubbock, Abilene, DFW Airport, Wise County, Wichita Falls, El Paso, Tyler, etc. What you end up seeing is you basically have room for a zone or two of 15 channels for every system which may not cover everything a state agency may actually need.
I've gone into a little detail of the zone loadouts on the codeplugs for my counties (I'm a sub-regional system manager meaning I manage within a larger region/COG but work for a handful of counties) and what we are starting to migrate to is a pyramid type plan where we have local day to day stuff, sub-regional interoperability, regional interoperability and then system wide interoperability. So we patch the incident talk group to the next step up to contain the incident. So if I have an incident involving multiple counties, the originating agency's dispatcher patches the active talkgroup with the first available sub-regional interop talkgroup. Initial responders remain on the original talkgroup and the new incoming responders use the interop group. From there it scales up to regional and then systemwide depending on the size of the incident. By the time we've made the transition from sub-region to regional response though...we've already stood up a ROC with a COM Unit and the SOC is on standby to be activated. Of course, getting this pyramid structure took a who regional interoperability planning group being formed for this purpose.
Of course there is the standard band dependent NIFOG stuff and we still fight battles with VHF versus 7/800 areas and finding the right balance of multiband versus single band versus single band with LTE-M which is actually a pretty great combo for VHF portables as LTE-M coverage in the 7/800 MHz areas tends to be as good as 7/800 MHz portable simply due to the population density of those areas.