I think it speaks for the weakness in the 'Nemesis' story line.
I would have liked to see something more along the lines of what we got with the Klingons in 'Undiscovered Country'.
That is after the Dominion War, an era of peace between the Federation and the Romulans is dawning. However, some Romulans arn't ready for peace and seek to sabotage that peace. It would have been neat to see Captain Picard pitted against a Romulan commander who is in every way his equal, but not ready to accept peace with the Federation.
Another idea would have been to bring back 'Sela' who hatred of her human half makes the idea of peace with the Federation detestable. She stages a coup, and the rest of the story plays out about the same.
I actually always felt that the Romulans should have been the allies of the Federation in TNG instead of the Klingons. It just seemed more believable to me.