Comment by kbolino

SELinux does not rely on the usual UID/GID to determine what a process can do. System services, even when running as "root", are running as confined users in SELinux. Confined root cannot do anything which SELinux policy does not allow it to do. This means you can let sshd create new sessions for non-root users while still blocking it from doing the other things which unconfined root would be able to do. This is still a lot of power but it's not the godlike access which a person logged in as (unconfined) root has.