Many, many fans weren't fond of Star Trek: Picard despite how much they loved Patrick Stewart and his portrayal of Captain Jean-Luc Picard on Star Trek: The Next Generation. Some preferred to remember him that way rather than how different he was as a retired admiral. But Admiral Picard had his good moments on Picard, and one of those moments involved an action that Captain Kathryn Janeway should have taken a long time ago. Admiral Picard gave a field commission to Seven of Nine .
Of course, during the run of Star Trek: Voyager Starfleet was against the integratiaon of augments into the Academy or its ranks, and with Seven of Nine's Borg implants, that brought into question her loyalty. Simply put, Starfleet wasn't sure that she could be trusted enough to become an officer. But that changed after Admiral Picard gave her a field commission. Not only was she trusted with a second-in-command position aboard the Titan, she was eventually promoted to captain and trusted with her own ship, the new Enterprise.
Captain Janeway was the type of captain who took chances, who challenged the status quo. She brought the Maquis back into Starfleet even though they were considered criminals. Yes, she needed them at the time to get Voyager back home, but once they were home, those crew members remained Starfleet officers.
Off-screen, Captain Janeway recommended Seven of Nine to Starfleet. If she was sure that was where Seven belonged, she could have given her a field commission before Voyager arrived back to Earth, thereby taking the decision out of Starfleet's hands. So why didn't she? It's a question we could still get the answer to one day, especially if there is ever a reunion between Seven and Janeway .