In Cardassian reasoning, it could also be that Dukat took on the whole of the occupation responsibility and guilt, on behalf and in service of Cardassia.
It seems to me that of the preceding 40+ years of occupation, and especially upon the initial conquest of the planet, things must have been much worse and turbulent for Bajor than when Dukat was sent there as a prefect. In fact he does go on to point that he tried to soften the occupation for bajorans, inasmuch as his military duty allowed (and it did not allow much).
It could well be that Dukat was never the master of his destiny and because of that, always tried to find a "true" role, wherever that led him. That would have been rich grounds for an elaborate, complex character development, but alas...