Due to fear of the common people and political pressure led to the creation of the Hero Registration Act, a law that limits the actions made by superheroes. The Avengers are in disagreement over their opinions of this act. Captain America feels they cannot rely on the government to protect the human race. Iron Man believes that it will keep the superheroes in check and prevent abuse of powers. A split is caused in the Avengers, with some of the heroes siding with Iron Man and the others joining Captain America. All the while this internal conflict is on-going, the external threat of a new villain strains the heroes even more.
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