I think this is one of the reasons I disliked the introduction of the Borg Queen in First Contact.The Borg Collective is either a "Decentralized Voice in their heads" or a voice controlled by "The Borg Queen".
Take your pick as to which one is guiding the entirety of "The Borg Collective".
I understand why they did it from a writing perspective. It gave the Borg a central character to function as the main antagonist. But I always thought they were far scarier as just a hive mind that subsumes individuals into it. And the ending of "Best of Both Worlds" is predicated on the idea they are a singular mind that can't act separately in thought and function.
But after the intro of the Queen, it's left ambiguous whether the Queen is an expression of the collective's will, or if she's whatever overriding directives in the Borg programming controlling the collective to her will.