Yes, he does give off classic sleazeball. Bet he wanted Graham’s job–he would have considered Regina’s “council meetings” a job perk.
Actually back in S1 there is a scene when David is missing and Graham radios for “all available units” sort of implied there were other officers but no idea where any of them are because Emma seemed like the only deputy.
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“If I had a world of my own, everything would be nonsense. Nothing would be what it is, because everything would be what it isn't. And contrary wise, what is, it wouldn't be. And what it wouldn't be, it would. You see?” -- Lewis Carroll, Alice's Adventures in Wonderland & Through the Looking-Glass