Shinya Kougami is an enforcement officer who is tasked with managing crime. Shinya has a high criminal mentality, but because of his skills as a detective, he was released under the condition that he becomes an Enforcer for the Public Safety Bureau, Unit 1.
Despite his natural grudge towards Makishima, they are actually somewhat alike, as shown in Shinya’s ability to foresee Makishima’s actions.
Later it is revealed that Shinya used to be an Inspector and the partner of Ginoza, but when he saw that Sasayama, an enforcer under Shinya’s order, became a victim of the case that they investigated together, his Crime Coefficent rose too high. He also knew that the case was caused by Makishima, and so, he built a really strong grudge towards Makishima. Later on in the series, he escaped from the MWPSB in order to kill Makishima with his own hands.