I really enjoyed Sleeper, but the whole time I was reading it, there was something I just couldn't wrap my head around.
The point of an undercover operation, I'd always thought, was two-fold: 1) to ferret out the head of the criminal organization, and 2) to gather enough evidence to put him away.
But in Sleeper, it was known from the beginning that Tao ran things. That was the whole reason for Lynch's involvement, to get Tao. And as for gathering evidence...this is I/O we're talking about. What the hell do they care about evidence or a trial? Why wasn't Holden's orders to shoot Tao in the head the first moment they were ever in a room together (or, y'know, a variation of that)? Or even just, "tell us where Tao is and we'll send every government spook and super hero in the WSU after him"?
All the time Holden was commiting crimes and killing innocents (under Lynch's orders, naturally not counting the time he was in the coma), what exactly was his end goal?