Let's take this from another perspective J. Maybe it will help you.
The council is the legislative branch of city government. They make the laws.
The police officers are hired by said city council to enforce the law.
Here's another. I have a friend who is a cop in Granite. He never wears his seat belt when we go to a ball game, golf etc... He thinks it's ridiculous for him to wear it if he doesn't want to. Guess what he writes the highest number of citations on?
Okay one more just for J. J goes to work. His boss says, "Jeremy, tonight we aren't putting the Jack sauce on the burger." J says, Wait a minute it's my choice to do so." The manager says, do it my way or you're fired for insubordinate behavior. It's all about following the orders of those who pay you.