I don't know, I don't think that it is possible. You can change their behaviour from defensive to offensive etc... but I'm pretty sure its not possible, just like IdolNinja said.
I did an indexed search on "throw grenade" which revealed the following files:
ai_behavior.xtbl
ai_goals.xtbl
combat_actions.xtbl
combat_actions.xtbl contains the definition, and it seems that "throw grenade" encompasses any projectile weapon such as rocket launchers, grenade launcher, and grenades.
ai_behavior are groups of actions that each ai can take, with "throw grenade" being one of a long list.
ai_goals are another list of actions that an ai can take depending on what "mode" they are in. "throw grenade" is part of actions they can take when in the following modes:
suppress
kill_enemy
flush out
Looking at ai_behaviors, the police defensive, and police average groups have Suppress as one of their listed goals, and "throw grenade" listed as an ability element. If I'm reading this right, it should mean that they are actually allowed to use grenades since that goal is part of the Suppress ai_goals entry.
Another indexed search on "police defensive" leads to spawn_info_ranks.xtbl which uses that as a class to how certain npcs will act. Looking a little deeper into this table, each entry has a weapon loadout list. Police Average doesn't seem to be listed, so this narrows it down to Police Defensive. Most of the law rank entries have Police Defensive as part of their AI rotation, and those mostly do have a flashbang listed as part of their thrown entry.
So, the question now is why aren't they actually doing it if all those elements are in place? It all looks right and we should see that kind of behavior happening in game at least every once in a while. If anyone wants to look deeper into it, feel free.