Question: Who exactly is Gabriel Shear (John Travolta)? Is he a government agent or a criminal?
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Answer: He works for a part of the government involved in counter terrorism. Basically, his group commits terror attacks in any country which commits acts of terror against Americans. So, as Gabriel says in the film, if a country shoots ten American tourists, Gabriel's gang blow up a city, in order to discourage terrorists from targeting the USA again in the future. So in answer, he is a government agent.
swordfish