Typically it means the police are an instrument of whomever is controlling the state to keep themselves in power, e.g. per Wikipedia "Police state is a term denoting government that exercises power arbitrarily through the police. (https://en.wikipedia.org/wiki/Police_state).
I also like to define Japan as a police state, a polite one, granted, but policing was done for the convenience of the police, not for "justice" as we at least attempt. I.e. it's more important to close a case than get the real perpetrator, which was made easy by a "judicial" system with a combined "confession" and conviction rate exceeding 99.9% (really). Past tense because citizen jurors of some sort have recently been added to the mix, although I note that the history of that in England suggests it'll be a long time if ever before that becomes anything resembling the common law system.