I genuinely can't believe that people still can't imagine enough of a world existing outside of their own perspective in order to assess how someone else might be feeling. The reasons for Kate's discomfort are obvious to anyone with even the slightest ability to read between the lines - you shouldn't need it spelled out for you.
Kate's a by-the-book FBI officer, whose training and entire career, up until this point, has been deliberately designed by the administration to showcase:
>The apparent sanctity of the law
>That doing things by the law is apparently the way to make the world a better place
>That morality and ethics are the virtues which create a distinct line between 'us' and 'them' (hence providing credence to the idea that our laws are, fundamentally, 'lawful')
It's hardly surprising that she's a bit uncomfortable throughout the events of the movie. Let's look at the things she has to be upset about:
>Being lied to continually from the start of the movie about who she's working for. This is a huge one - even when it's not obvious they're necessarily CIA, it's obvious they need Kate on the team. She essentially has the power to allow or deny this operation at any stage, and so she is ultimately morally responsible for everything that happens during and after the operation. Until she speaks to her superior at the FBI, she also has cause for concern regarding her legal complicity. Even after that conversation, it's still possible that she's working for a group which is prepared to go far beyond the remit granted to them by the elected authority. The goalposts have been moved, but no one tells Kate where they've been moved to. At no point in the movie can she be safe in the knowledge that what's going on around her has explicitly been approved on a legal or ethical level. Then there's the aforementioned moral concerns Kate herself will understandably have. Essentially, for the entire movie, Kate is being pulled along by what could very well be a rogue element operating entirely under their own rule-set, and she could be the one enabling them to do it.
>The shootout on the border. Kate says herself that she isn't a soldier. The idea of unloading on a car full of people, the killing of many of which would not have been legally justifiable in an American court of law, around hundreds of civilians, then driving away as if nothing happened, is understandably alien to her. At this stage, she still has no idea who she's really working with. Whilst it was obvious that their actions were ultimately right from a tactical perspective, the casualness with which the actions were executed and perceived by the rest of the team could cause her to doubt the credibility of that team to be leading an inter-agency task force, which, generally, requires a stalwart of convention and law. Her team come across like trigger-happy cowboys.
>It's obvious they used torture to extract information from Diaz's relative. This has nothing to do with being overly liberal in nature. The use of torture is polarizing on all levels of the political and ethical spectrum. Kate is obviously concerned by this.
>They used her as bait. Shouldn't really need to explain why this might not be the most effective way to build team cohesiveness and trust.
>Extra-judicial killings: see torture. For someone who's spent their entire professional career with the FBI, the perceived potential implications of allowing this to go ahead (which is what she would be doing by turning a blind eye to it) cannot be overstated. When the person carrying out those extra-judicial killings is really a totally unknown player (which Del Toro is), working for a team whose actions may or may not be sanctioned by any higher authority (remember, she isn't told where the goalposts are now), then the issue is compounded a thousand times. Kate might have spent her whole career being by-the-book, but she's obviously aware that methodology like 'fighting evil with evil' is used by certain factions on her side of the fight. She's not that naive. And, like everyone else, she'll also have her own ideas about the value of this approach (it's alleged benefits for achieving an actual outcome vs the ethical and legal concerns). And there's absolutely no reason she should be convinced that what they're doing is the 'right' way of dealing with the situation, since the success of this methodology in real life is never consistent - sometimes it works and sometimes it doesn't. Kate's spent years fighting 'evil' people who are doing 'evil' things, and whilst she can see that her by-the-book operations aren't effective, it's not at all stupid for her not to immediately jump to approving the 'let's get into bed with an equal but more controllable evil' approach. The ending scene of the movie only exists to showcase that Brolin and Del Toro's actions may not be any more successful than Kate's. So to come here and suggest that Kate was wrong, when the movie has purposefully been made in such a way that it's impossible to say whether she's right or wrong by the end of it, is arrogant and woefully misguided.
People who criticize Kate's approach, her inner conflicts, and her 'liberal mindset' are people who don't fundamentally understand the actual drug conflict, and blindly accept that Del Toro's approach of fighting evil with evil is the truly effective course of action, just because he's the protagonist of the movie. In real life, the value of fighting evil with evil is inconsistent and distorted, and Kate is simply the embodiment of that uncertainty. I would have personally preferred it if she hadn't signed the form, but it was obviously symbolic of what humankind on a whole is prepared to do when a gun (a raging drug war) is pressed against your head (is occurring on your borders). She should have shot him though, to show that the evil you use to your ends one day, is the evil you end up fighting the next day.
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