Hell, he's much closer to a spook. He only reports to the joint council that heads up the universe iirc, and is authorized to get the job done 'however necessary'.
The entire first chapter of the first game was spent trying to prove that one of the other space spooks, who was notorious for going by the letter of that mantra, was actually doing something illegal enough to justify pursuing him.
Every time I see Kissinger, I throw this out there