Prior to Jan 1 2013, most conventional analog radios ran in "wide-band", where when you spoke into the radio, your voice was 5 kilohertz "wide". Pretend that's a foot long ruler. After Jan 1 2013, as a general rule, public safety transmissions were required to be narrow, where the voice is only 2.5 kilohertz, so it's "narrow", or half of that ruler. Your scanner is listening for voice that is a foot wide, but only receiving 6" wide signals, so it's half as loud. Newer scanners have settings for narrowband so it KNOWS it's only going to receive half signal compared to wide-band, and compensates for that for the end user.
The reason for being narrow is you can fit more users within a range of frequencies, because they only take up half the space in the spectrum now.