So, you hold Starfleet accountable for every rogue officer? Does this make Starfleet responsible for all the Yangs and Kohms Capt. Tracy killed?
there's a big difference between "going rogue" and being given a wide latitude to complete a key mission. Clearly Sisko was given a wide latitude to do what was necessary in that case, he was NOT "going rogue" even if Starfleet didn't have 100% knowledge of the specifics of what he was doing.