Is there not something in 'Emissary' that speaks to the fact that he was assigned there and that was it?
Starfleet is a service after all, you don't get to always cherry pick and do the role you want. I got the impression at the start he was assigned there whether he wanted to be or not.
But it's a while since I saw the pilot.
'If the Apocalypse starts, beep me!' - Buffy Summers
'The sky's the limit.....' Jean-Luc Picard, 'All Good Things'
courtesy of Saquist