He has absolute control over the city, which includes people actions
He says that he could control anyone individually, but doesn't do it because there's just too many people
His decree are general commands that everyone follows, but he can be more personal
So people are rightfully calling it mind control rape because he can seemingly instantly flip a switch and make any women want to fuck him/allow him to fuck him. There's no way they can refuse him since he control their actions, and he could stop any and all attempt at refusal or retalation from any of the city inhabitant