indeed, yet another point about the movie that makes no sense. Dougherty outright says that he's acting on orders from the council then gets freaked out about Riker... going to contact the council. So... he's going to inform them about something they know about, and gave the orders about. It's like no one even proofread the script. They wanted to have their cake and eat it too: "Picard and his crew go rogue, defying the Federation!" "oh but wait, it's actually just one rogue admiral! Except... he's not rogue because he's under orders from the council!" But wait! They didn't know what they were doing!" what lousy writing.