This was not dreamed up and pulled off by a couple of rogue BATFE agents.
Well considering that there are now 12-15 whistleblowers working with Issa and Grassley, I'd say you are right that it is more than a couple. We also have Lanny Breuer and Emory Hurley named from the Department of Justice and some unnamed agents from other federal agencies who were apparently a part of the Fast and Furious task force.
Whoever is behind this clever plan has enough clout to form a multi-agency task force that includes DoJ, ATF, and DHS and then order said task force to violate treaties and standing agreements the U.S. has with neighboring countries. If that guy isn't close enough to Holder that Holder knows what he is doing, then why does he have that much power?