"decisions which they don't understand to be compliant" = "decisions which they don't believe to be compliant"
In other words, they understand that the decisions are not compliant. There's no contradiction with what you said.
"decisions which they don't understand to be compliant" = "decisions which they don't believe to be compliant"
In other words, they understand that the decisions are not compliant. There's no contradiction with what you said.