1. Do I evaluate based on the criteria for Active Cells and, then, if not resolved true, do I then evaluate for Sleeper Cells for the same criteria?
Yes. If no active cells within one of the designated target types, then choose randomly among the options with sleeper cells.
The rule just means that in situations where you have a choice and there are active cells in the countries you can choose from, the countries with active cells will move before those without active cells.