What does Laws control the lesser man right conduct controls the greater one mean?

The greater man's morality is self sufficient, able to think independently, make decisions and judge for himself what the right course of action would be and take it upon himself to do so. Meanwhile the sheltered mind of the lesser man sticks to the books sometimes jeapordizing the lives of innocents' for the sake of doing his job. He wouldn't take the extra step or cross the line to do what was absolutely necessary because he was programmed to do what he was told. It's like comparing a vigilante to an officer of the law.