Esentially, the orders to "shoot to kill" free up the unit's restriction on the engagement of hostiles. Ironic that it's pretty much the only measure taken so far to bypass red tape while FEMA and other organizations argue at the top over operational control.

It means convoys cannot be stopped by a single person a la Tienamen Square. They can shoot him/her and proceed. If I was coming off the line and shoved on the convoy with a weapons free order, you'd bet I'd shoot you too if you jumped on my truck.

The problem is that you're trying to marry law and compassion into a single entity. No such beast exists, either you uphold law and order or you don't.