I think I understand your process flow, and kudos for tackling a process without workflow! 

I'm fairly certain that because your process never hits step_id=6 it does not know what would be populated at that step to show on the form. Forms does not "read ahead" in a process since so much of the conditional logic can change with any process step (workflow/form submission/etc.)

Going back to your impressive process without workflow, how is the second approver determined? Do you assign a task to a team and they pick up the process from their inbox? Is it a hard coded name?

When I have built processes like this in the past, I use a field rule "Hide Police Department Approver and > ignore data when hidden > when Police Department Approver is blank" What this does is keep the field blank and not allow a blank default value to be saved at any step in the form until it is available to populate. So once your process hits the second approver and there is a name to populate, it is displayed on the form and will show up on the form that is emailed (to I'm assuming the initiator) upon completion of the process.