It might not need or want one, but it might not have much choice in the matter.
There are always greater things at play. I find Heth's rise to power as suspicious as I found Jamyl's death - and if you'll recall, that event led to some rather accurate... prophecies on my part. Were I a guessing man, I'd call the Broker as much a puppet as Heth - not the puppetmaster at all, just as Istvaan Shogaatsu is himself but a puppet to far greater, far more hidden powers, merely playing the role of puppetmaster.
We are all proxies of proxies of proxies. So is every actor in this game. Plots within plots.
I'm being intentionally vague in case my guesses are accurate, as they always fucking turn out to be. I've played prophet long enough to prove I'm good at it. This time, I prefer to be genuinely surprised. The story of Eve is not as fun when I can predict where it will go :p