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I could see it. Kind of set it up a bit with Black Widow's speech before that committee at the end of Winter Soldier. She was basically like "What are you going to do? You need us."
With her checkered past out in the open, plus with the "Hydra Scare" going around, I could see some politicians wanting to have all the heroes sign up, register, pledge allegiance.... etc.
You would have to do the story on a much smaller scale in just a Cap movie, as it won't have millions of cameos. Could do something where Cap learns of the bill before it is passed.... some conspiracy stuff.... Cap thwarts some evil villain's plan.... but at the end of the movie the bill is passed anyways, setting the stage for further movies and The Avengers.
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