Less obviously, more villains need to be added to the Marvel Cinematic Universe before Marvel could possibly consider this movie, for a number of reasons. First, in the comic book arc, there were actually a number of villains who chose to register as superhuman (although, obviously, lots of them were against the idea), so it would be interesting to see some stances from an evil point of view - or potentially see some villains siding with heroes in the fight. Second, we need to see more villains as ongoing concerns, so that the need for the registration act is more obvious. If more villains start causing as much destruction as the Avengers and the Chitauri did in the battle of New York, the people of the Marvel Cinematic Universe will want an official force of heroes who are ready to prevent that from happening 24/7. Simply put, it makes more sense for there to be more villains before the bill is in place in this continuity.
