As someone who has thought about, planned, and implemented a lot of RBAC... I would never trust the security of a system with RBAC at that level.
And to elaborate on that -- for RBAC to have properly defined roles for the right people and ensure that there's no unauthorized access to anything someone shouldn't have access to, you need to know exactly which user has which access. And I mean all of them. Full stop. I don't think I'm being hyperbolic here. Everyone's needs are so different and the risks associated to overprovisioning a role is too high.
When it's every LEO at the nation level that's way too many people -- it is pretty much impossible without dedicated people whose jobs it is to constantly audit that access. And I guarantee no institution or corporation would ever make a role for that position.
I'm not even going to lean into the trustworthiness and computer literacy of those users.
And that's just talking about auditing roles, never mind the constant bug fixes/additions/reductions to the implementation. It's a nightmare.
Funny enough, just this past week I was looking at how my company's roles are defined in admin for a thing I was working on. It's a complete mess and roles are definitely overprovisioned. The difference is it's a low-stakes admin app with only ~150 corporate employees who access it. But there was only like 8 roles!
Every time you add a different role, assign it to each different feature, and then give that role to a different user, it compounds.
I took your comment at face value but I hope to god that Flock at least as some sort of data/application partitioning that would make overprovisioning roles impossible. Was your Texas cop tracking an abortion a real example? Because that would be bad. So so bad.