Well, it's clear that UPN was interfering with VOY and ENT in ways that TNG and DS9 did not have to endure. Since Berman is not UPN, it had to be some Network Execs higher up than him giving him those orders.
It reminds me of "The Wire". For the longest time everyone hated Commissioner Burrell as some bureaucratic A-Hole who kept messing up cases and details for little to no reason. Then in his last appearance we find out most of his actions were due to him carrying out nonsensical and schizophrenic commands from the Mayor that Burrell knew were stupid and were messing things up, but carried them out because his job was on the line.