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From the FAQ:

Team Issue
Cards released by teams for giveaways. Usually no manufacturer noted.

Nothing about who paid the printing bill.  Just "released by the teams" which would include at the stadiums. Police sets have always been collabrative projects between teams, local law enforcement, and usually a sponsor (the one paying the bill).  The cards were released (handed out) by the teams, the players and police. Most commonly at stadiums, during public appearances (usually in schools) and at police education programs such as DARE.

I think the collaboration of entities, if including the team, as Chuck shows above means the team "shared" in the production of the set, therefor is exempt. Look at the Edmonton Oiler / West Edmonton Mall cards. Some were sponsored with sponsors shown on the card front and some have nothing, hence the difference between Issue and set. Am I not correct?

I went to the 1995 list of sets and saw that the 1995 Green Back Packer Police set is under the Oddball heading.  I kinda feel that best describes the set. Less confusing and probably more accurate than trying to guess who did or didn't pay the printing cost and how it was distributed.  Now for a different yet related topic:

I remember one year being out trick or treating and a Tacoma Police officer was patrolling the neighborhood and stopped to call the group I was with over.  He gave each of us two Seattle Seahawks football cards.  I got Blitz the mascot and a player card (I don't remember who). It was the coolest thing I ever got while trick or treating and includes receiving full size Snickers (my favorite).  I still have both those cards too.  

  The purpose of an index is to make information easier to find.    It's that simple.   It is not a law created by God or a group of semantic geniuses.      If someone finds a "Mother's Cookies" card and wants more info, they will look under Food Issues, if not found there, they will search Oddball.     The person will not give up on first try.    Too many people let the minutiae get in the way of the purpose of the data base.