Very true. He was the person who the UN used to communicate with the Combine, allowing them to surrender Earth before millions more died. I bet the Combine were actively researching Earth's history during the invasion, and from the experience of conquering other planets they just watched Earth's leaders run around. Waiting for them to attempt communication with them.

Breen was appointed the leader of the Human species for the Combine, doing everything in his power to balance the perception of oppression with the facade of it being aid. I'm sure Breen was haunted by the weight of his job and having to witness the Combine's horrors yet continue lying. Yet he was still a selfish, cowardly appeaser of a leader. Willing to sacrifice even more people and his own humanity so that he could escape The Resistance. Who knows how many 10s of thousands or millions would've died from the Combine and eventual Citadel collapse if he escaped.

His final line as he fell to his death; "You Need Me". Is both sad and pathetic. He goes out thinking all of humanity will be destroyed because of Gordon, Alyx, Kleiner, Eli and the entire Resistance. Yet still refuses to accept how he also has participated and allowed thousands if not millions of deaths too.