New York City police sergeant Brian Muldoon was angered by the unusual behavior and frequent absences and disappearances of rookie policeman Steve Rogers, leading Muldoon to routinely berate him.
Turning to a life of crime, and assuming the guise of The Cowled Commander, Muldoon assembled a group of super-villains he called the Crime Wave. After a looting spree of New York City, Muldoon and his allies were brought to justice by Captain America and the Falcon.
Muldoon became driven to destroy Captain America, hiring the sentient robot Manipulator to kill the hero. Capturing Captain America, Manipulator subjected the hero to a number of simulated scenarios designed to brreak his sanity, but Muldoon, demanding a quick end for him, lost patience and attempted to shoot Captain America. Captain America was able to deflect the bullet and subdue Muldoon. Muldoon has apparently been incarcerated ever since.