It's much more simple than that.
In our country, you interact with the police in certain ways. You an argue whether it's right or wrong but that is beside the point.
Every sane adult in our country knows how to deal with the police. Herman knew what he was supposed to do. He was supposed to pull over and wait for instruction. They would have approached his vehicle, asked for license and reg., ran his stuff, and then asked him a few questions. If he was having car trouble, they probably would have even helped him out. I've been helped out by the police more than once after being pulled over. I once had to drive like 150 miles with only one headlight and didn't get a ticket despite being stopped 4 separate times.
Instead, he keeps driving for 3 MILES- waaaaaay to long- and them immediately gets out of the car and confronts them. Police are constantly getting killed by people jumping out of their car and shooting them.
It happens all the time.
Herman knew exactly what was expected of him and deliberately chose not to do it.