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While Joe and frank are at Dunning's house, the FBI (or maybe the CIA, or maybe both!?) surrounds them. Victoria tells them they are surrounded and there is no clean exit, but she can cover them to the woods, if they can create a distraction. Frank tells Cooper he is surrendering and coming out, and Cooper swears that he will be safe. He issues a no-shoot order.

As Frank (Joe Pretending to be Frank) leaves the house he is shot instantly.

Who shot him and why?

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I always thought it was Victoria as to create the distraction, seeing as Joe was near death anyways he felt it was the best use of his life. Maybe I am wrong in thinking they would have this kind of understanding but they all seem fairly aware and accepting of a probable death. –  user6409 Oct 13 '13 at 1:40
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up vote 3 down vote accepted

Cooper’s reaction indicates that it did not come from the CIA, and the only other agency there was the FBI. Since it was not likely to be Frank, Sarah, Victoria, etc., it points to the FBI.

The problem of course is that just because Cooper called for hold-fire, does not mean that someone else from the CIA couldn’t have done it. As you suggested, it could have been another CIA agent working under direct orders from the higher-ups, working for his own agenda, or even just a case of nerves.

Also, Dunning probably has some more guards and could have tripped some sort of alarm to send for reinforcements.

Everything about that scene (especially the slow-motion and muted sound) make it clear that the shot is supposed to be dramatic and mysterious, so we are not really meant to know for sure. Plus, don’t forget that the scene leads immediately to an action escape, so the viewer is probably not meant to dwell on the facts and that scene served as a sort of transition to their unlikely escape.

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i'm sure it is even possible that Victoria did it as part of the plan (Joe is terminally ill after all). –  matt_black Dec 29 '12 at 15:52
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I think your point will become clare by the follwing schene of movie-

Cooper tries to negotiate Frank's surrender, but Frank tells Cooper about the vice-president's treachery, which shakes his faith. Joe sacrifices himself by taking Frank's place and pretending to give up. An unknown sniper kills Joe as he leaves the mansion, despite Cooper's order to hold fire.

Source- Wikipedia

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I don't think that answers my question. I was hoping for more than "an unknown sniper" ;) My own feeling is that it was probably someone who had orders from higher up, probably Coopers Boss, or directly from the VP himself, to take out Frank at the earliest opportunity. Or someone under orders from Dunning, but I'm less inclined to that as I don't think he could have told anyone as he was captive,(and probably unconscious!!) at the time. Or did someone just screw up/not hear the no-shoot order. –  AidanO Apr 26 '12 at 7:22
I can't find sources for any of the above, hence the question... –  AidanO Apr 26 '12 at 7:23
@AidanO i have googled it and everywhere the killer is told to be a unknown peraon who shoots without the order of cooper. –  Ankit Sharma Apr 26 '12 at 9:46
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