I don't know that I buy that. Sure, cloaking technology is used for surprise attacks and espionage. But is that it's only use? I can think of others.I kind of like the idea that the Federation, being primarily concerned with exploration, view cloaking devices as something of an underhand technology only really useful for suprise attacks and espionage.
For example, we've seen that the Federation is interested in learning about more primitive worlds, but wants to keep their existence secret. Suppose they want to learn about a planet that is at the 2011 Earth level of technology. Well, we certainly are nowhere near Starfleet's level of technology, but we would easily spot a ship that flew into our solar system or entered orbit. Unless Starfleet was content to do nothing but long range scans, they'd almost have to have cloaking devices to investigate planets with any level of technological development at all, wouldn't they?
I am sure the Romulans only want to keep the Federation from having the latest and greatest of invisiblilty tech. Starfleet ships seem to have some ability to hide themselves from contempory long range scanners.