The ToS is negotiable. As it usually is when talking large sums of money. You can retrieve this with a FOIA request and see how they tend to be unique to each city. Some customers like to define the relationship differently or make additional restrictions for data handling.
I really just want to point out that layman terms and contract law are two different things.
I wouldn’t care if anonymized data is being used,I would care if I’m told I control sharing but it turns out I don’t. It’s not clear to me Flock did anything wrong. It sounds like that department inadvertently shared with a federal agency because it wasn’t obvious to them they were doing so. (Federal agencies are clearly marked as such now, product complies with state law to prevent accidental sharing)