^ Something else to consider:
"The Menagerie" makes it obvious that the Talosians do indeed have interstellar reach with their powers. This is proven, not just by the illusion of Mendez, but also by their ability to fabricate a seemingly perfect record of Pike's decision to divert to Talos in the first place. It is reasonable to conclude there was no lightspeed distress signal from the Earth colonyship; that, too, was an illusion.
I'd like to speculate on the "true" nature of General Order 7. It is obvious from the "elderly Vina unveiling scene" that Pike stayed on the surface longer than Number One expected. We can easily assume Pike did some serious negotiating right after Vina went back underground. The Talosians probably learned of General Order 7 from their intrusive download of the Enterprise's data library. The Magistrate probably suggested a declaration of Talos IV as a "plague world" covered by 7 as a way to discourage unwanted visitors from Federation worlds to the Talos Star Group. The impression I was left with was that the quarantine was Magistrate's idea, and Pike concurred.
It might go like this:
PIKE and MAGISTRATE LOOK ON as VINA is lowered underground.
PIKE
At least there, she'll be well cared for.
MAGISTRATE
Yes, we will provide for her. She will remain safe in our underground complex.
PIKE
And... she's going to think she's with me? How will you keep the illusion going after I'm gone?
FIRST TALOSIAN
We have the ability to assimilate all of your knowledge, all of your memories and feelings. You will always remain with us, even after you have gone.
SECOND TALOSIAN
That is key to the "narcotic" you spoke of. No Talosian ever dies, even if the physical body expires.
MAGISTRATE
As Magistrate for our community, I am not simply the Keeper of our captives. I am the custodian of a world of memories and illusions that never ends.
PIKE
Now, our Federation has had an uneasy status quo among our members for generations when it comes to psionic powers. So far, we've let it mostly settle on disciplines of the various cultures. So it's been an internal matter.
FIRST TALOSIAN
You speak of the Vulcan discipline, as an example. Yes, we have noted this.
MAGISTRATE
As a starship captain, you assumed First Contact responsibilities on this matter.
PIKE
Yes, and in my judgement, we should assume other visitors will come to your world. What arrangements would you find acceptable?
SECOND TALOSIAN
Our race is infertile. We are the last of our kind.
FIRST TALOSIAN
But unlike the worlds in your Federation, we can extend our lives indefinitely.
MAGISTRATE
We shall remain beneath the surface of our world, forever sequestered... and forever protected.
PIKE
And also forever trapped there? The way you live doesn't sound much different than what you had planned for us!
FIRST TALOSIAN
Our captivity is our way of life. It has been that way for over eighty thousand generations. Our freedom comes to us vicariously through living the dreams and memories of those we assimilate.
PIKE
But you will eventually die?
MAGISTRATE
Our demise is not imminent, but even our abilities cannot stop the inevitable.
PIKE
And you don't want any meddling from outside to complicate matters...
SECOND TALOSIAN
Long ago, we learned to evaluate the abilities and attitudes of races throughout this Galaxy.
MAGISTRATE
We determined the best approach to discourage unwanted contact was to make our world appear as unattractive and valueless as possible.
PIKE
I see what you're getting at. Make this place seem like nothing more that a barren rock.. or worse, a plague world...
FIRST TALOSIAN
That no inquisitive space traveler would want to visit or colonize.
PIKE
That only problem is, one man's meat is another man's poison. If we record this world as unattractive to us, how do we know others won't come?
MAGISTRATE
Perhaps General Order Seven would prove useful.
PIKE
(smiling)
You read my mind.
SECOND TALOSIAN
Your Starfleet General Orders would seem to make allowance for a quarantine that would discourage open discussion in the event unwanted visitors did arrive here.
PIKE
And this would keep the cork in the bottle.
(to MAGISTRATE)
I agree.
MAGISTRATE
That arrangement would be satisfactory.
PIKE
I'll make my report to Starfleet Command immediately. Will that be sufficient?
MAGISTRATE
We are able to reach your superiors should it become necessary.
PIKE
(chuckles)
I'll bet you are. That's it, then.
MAGISTRATE
You will now be returned to your vessel. We have illusion and you have reality. May you find your way as pleasant.