Re: decision regarding Rugal incomprehensible!
I've never understood why the commanding officer of a Federation starbase had any authority in deciding a custody dispute between Bajoran and Cardassian citizens. Rugal was a Bajoran citizen and lived on Bajor; this dispute, from a Federation POV, should clearly have been kicked over to a Bajoran court to decide.
IIRC, Sisko was the arbiter because both Pa'Dar and Proka asked for him to be. They considered him a neutral party.
There will be order.