As much as I like the character, I have a hard time seeing him working as a pure solo character in a comic.
So what I would do is team him up with Eli Bradley/Patriot. That way you get the mentorship angle(Sam's been a hero forever, he has to be an inspiration to somebody) and the original Cap/Falcon dynamic but turned on its head(this time the dude with the shield is the sidekick).
I'd also bring back Junta and Kasper Cole from the Crew comic and the hot Latina SHIELD Agent from the Priest Cap/Falc series.
That way you could play a Falcon book like Person Of Interest with Sam, Eli and company targeting criminals outside the grasp of conventional law enforcement.