No doubt because Bacco was inspired largely by Jed Bartlet on The West Wing. Or maybe Keith was just tired of the cliche of the obstructionist, inept authority figure.
As a reader, I took it as KRAD
wanting to do a story about good
leadership, both to contrast with Min Zife (very definitely a story about bad leadership) and, I inferred, to express the optimism that the Federation is supposed to stand for in Star Trek