There's also cases like Medical Doctors where the start already requires meaningful education and training.
Some titles/responsibilities aren't appropriate for someone with no experience but that doesn't make the people in those titles senior at that function.
In this example, it's a bit different as in it is known across the industry.
Having worked for a number of years in both the private and public sectors, I can say that job titles and descriptions do not necessarily always align between the two. In other words, I understand what you're saying, and can empathize with your confusion.
If helpful, the job descriptions/classifications for all roles at the City of Minneapolis are available online:
https://www.governmentjobs.com/careers/minneapolismn/classsp...
I don't know that it will resolve the confusion entirely, but it may help to shed some light. Thank you again for the question!