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It's not usual for policers to slow traffic under it's nominal bandwidth with a too small Bc(/Be). Often traffic is bursty, and a too small Bc(/Be) will drop packets out of a short term bursts even though the longer term average is under the CIR. When you increase the Bc, you allow the policer to measure rate rate across a longer time period which will then often allow small short term bursts to pass.
The average of 1, 9, 1, 9 and 5, 5, 5, 5 are both 5, but usage is quite different between the two series. A too small BC, in a policer, might drop all the nines in the first series, but pass the ones and fives. Increasing the Bc may allow the policer see the longer term average for both series is 5 and pass all the packets.
