Probably any given Founder in a specific region is technically the leader of all Dominion governance. So all resources, whether social, military, economic, etc. are under his or her control. This may explain why the Female Changeling was the ultimate ruler of Dominion Cardassia. Yes, Dukat, Damar and Broca were the heads of government but they were largely puppet positions. Dukat/Damar/Broca still had to answer ultimately Weyoun and to the Female Changeling.