After some deep thinking I've come to the conclusion that Agent Locke is just a harmless Master Chief fanboy.
Look at him. Alone in a dark room with only pictures of Master Chief to keep him company as he looks back on Chief's greatest moments.
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In the Halo 2 anniversary theres a cutscene about agent locke and arbiter. Not going to spoil what it is but he is not what you think he is and arbiter has changed as well.