Free Shipping freeshipper is designed for being the only shipping module when the Order weight is 0 and 0 weight means Free Shipping or all Products are set to Always Free Shipping YES ...
Now this could work if only this distributor's Products were in the cart and you customize it for orders over 25.00 and set the Handling to 4.99 ... however, this is not managing when the Order is a mixed order from multiple distributors unless you customize your other shipping module(s) and some how manage the distributor's rule on the minimum $25.00 order ...
You need to addressed this issue to cover all of these conditions:
1 if 1 or more products are from this distributor then that distributor's products in the cart total at least $25.00 or more ... (note: that is not order total that is just the products for that distributor) then the before going any further ... that amount is tested to allow checkout ...
2 If the $25.00 for that distributor is the only thing in the order, then you can use the Free Shipping freeshipper based on the premise that 0 weight and always free shipping are only on this distributor's products and set the handling to 4.99 ...
3 if the order is mixed distributors and the order has $25.00 or more from this distributor then you customize the other shipping module(s) to add the 4.99 to the shipping costs ...
4 if the order is mixed distributors and the order does NOT have $25.00 or more from this distributor then you are stopping the checkout from happening ... until the order either has the additional products added or all products removed for this distributor ...
So ... there really isn't an easy way around this without testing and handling all circumstances based on what's in the cart and how much from this distributor ... :unsure: