The reason every server isn't POWER is: ecosystem. For any random company, switching archs for anything less than a multiple factor gain is a daunting multi-generation proposition. For a hyperscaler like Google the bar is a lot lower but you need a compliant vendor that will do a lot of the long haul platform work. IBM's been trying to establish that for many years and is just about to pull it off. Supply chain is also important, hyperscalers have come to expect buying and building systems a certain way and IBM will now just sell chips or even the IP for you to fab yourself. And of course the total cost calculus: capex, and opex in the form of TDP, support burden.
Google _will_ be using P9 for GPU servers internally. The inflection point for them was I/O and memory bandwidth. So, paradigm shift was what was needed to turn a juggernaut.. and that is what adding a bunch of accelerators to your platform is. Intel has no good solution there.
I believe POWER9 has the ability to be either big or little endian as well, so that helps for compatibility issues, and it's just a matter of whether your application can compile.