...Perhaps we can fall back on the various precedents on real-world top officers being eccentric with their dress code, and influential enough to get away with it? After all, the oddity we discuss here is limited to flag officers - as are the various problems regarding the bewildering number of 24th century flag uniform variants vs. the limited number of standard uniform variants. "Seemingly" one-off or two-off flag uniforms (that is, just a couple of appearances on our screens) might well have been "true" custom jobs (that is, only two in existence in Starfleet, and against the regs, but nobody has the guts to get these eccentrics back in line)!
Timo Saloniemi
Timo Saloniemi