Okay, if the Federation Council didn't send Dougherty to the planet as part of a official mission in the first place, why was Dougherty there at all?Well, that would depend on whether or not you believe Dougherty when he said he was acting on Council authority. I don't, and never will, believe that.
If it wasn't a official mission, why was Data there at all?
IMHO, the Sona approached the Federation Council, other than the Baku and the Sona were the same people the Council knew all the facts, the Council approved the project, the Council told Starfleet to oversee the project, Starfleet Command at that point selected Admiral Dougherty.
I don't think Dougherty had any control over that.Plus having the guy getting talked into letting the Son'a blow up the Enterprise makes you wonder what else Ru'afo talked him into.
Remember, when Doughterty wanted to order Riker to turn around, Roafo wouldn't let him (the Admiral was on Roafo's ship). Later when Dougherty ask to be taken to the surface to talk directly with Picard Roafo refused.
Dougherty had no control over events, he didn't let Roafo do anything..
Dougherty "agreed" only that Roafo would send ships to escort Riker back, he knew Roafo would do anything he wanted regardless of what Dougherty agreed to.

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