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edited quote to reflect change in source material
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Pops
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From the Memory Alpha article on Mendon:

Mendon was a 24th century Benzite Starfleet officer who, in 2365, participated in an Officer Exchange Program operated between his government and the United Federation of Planets.

Mendon specifically requested to be assigned to the USS Enterprise-D. He came aboard at Starbase 179 with the rank of ensign.

I would guess it's because his government was participating, that he was able to do the exchange as a Starfleet ensign. He may well have a rank higher than that within his own government.

From the Memory Alpha article on Mendon:

Mendon was a 24th century Benzite Starfleet officer who, in 2365, participated in an Officer Exchange Program operated between his government and the United Federation of Planets.

Mendon specifically requested to be assigned to the USS Enterprise-D. He came aboard at Starbase 179 with the rank of ensign.

I would guess it's because his government was participating, that he was able to do the exchange as a Starfleet ensign. He may well have a rank higher than that within his own government.

From the Memory Alpha article on Mendon:

Mendon was a 24th century Benzite officer who, in 2365, participated in an Officer Exchange Program operated between his government and the United Federation of Planets.

Mendon specifically requested to be assigned to the USS Enterprise-D. He came aboard at Starbase 179 with the rank of ensign.

I would guess it's because his government was participating, that he was able to do the exchange as a Starfleet ensign. He may well have a rank higher than that within his own government.

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Izkata
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From the Memory Alpha article on Mendon:

Mendon was a 24th century Benzite Starfleet officer who, in 2365, participated in an Officer Exchange Program operated between his government and the United Federation of Planets.

Mendon specifically requested to be assigned to the USS Enterprise-D. He came aboard at Starbase 179 with the rank of ensign.

I would guess it's because his government was participating, that he was able to do the exchange as a Starfleet ensign. He may well have a rank higher than that within his own government.