i'm almost sorry i raised the point about Setsuna being de-facto boss guy all of a sudden because of his main character penor.
after all, Sumeragi is officially back in CB now, so chances are she'll be the big boss again, (and below her?). I don't see her dying off for a long time. In fact, I don't think they have the guts to kill her off at all.
But it just annoys me when stuff like that happens and we're not supposed to bat an eyelash. Although, I do think David's the closest to right, and that Tieria's small comment was just surprise at Setsuna's decision, not disagreement with it... Still, the acknowledgment of his 'request/order' still begs the question of, if anything did happen to Sumeragi, who'd be calling the shots...