The Dutch has a word that means the opposite of zero tolerance. Gedogen cannot be directly translated into one English word. It means something is to be tolerated, but not in a passive sense like “to tolerate” normally implies. Certain parts of Dutch life (I’ll leave it up to your imagination, just think of the activities that Amsterdam is famous for…) is technically illegal, but it is actively tolerated.
For social matters without one clear solution and where it is obvious that the problem cannot be solved by prosecution, Dutch society (and the law) will decide to gedoog it. Enforcement of certain matters will be flexible. You can even say that the Dutch will be accommodating instead of trying to do the impractical.
If something has been gedoogd, it is not legal, but also not illegal. Now let that idea sink in!