The Orions had an agreement with Reyes that Nogura allowed to stand that what happened on the Orion ship was not subject ro Starfleet control. Reyes took advantage of that when he sought asylum. Nogura let that continue for a while until he sent armed Starfleet personnel aboard and 1) tried to extract Reyes and 2) killed Orion citizens aboard a vessel that Starfleet had agreed was not under their jurisdiction. What Nogura did was nothing less than murder.
After that I wouldn't trust Starfleet any further than I could throw a Starbase.