Supposedly is pulling extreme weight. Can't remember the source but I remember reading a case where the city council thought there was one data agreement and Flock implementing broad sharing across all government agencies.
It's quite possible that Flock has different sales contracts, so if a city manager (or whomever signs those contracts) doesn't have a lawyer review the contract or if neither the manager nor lawyer consider data sharing with the Feds to be a concern, then of course my assumptions are off.
But Flock's current PR cycle pins all of the blame for too much data sharing on the customer's permissions settings.