Bear spray is 10%
You have it backward. Bear spray (2% cap) is WEAKER than human pepper spray (10% cap). This is because bear spray is designed to deter a bear, ie, to make it run away, and not knock it on its butt. A bear, unlike humans, will hurt itself if it is blinded for a long period of time.
The advantage of bear spray is it fires long distance, which is so you don't have to get close to a bear to use it. Human pepper spray is meant for close encounters. I suspect police pepper spray is high-pressure, so it shoots far, which makes it appear as if it is bear spray.