Yes, initially when I saw this film I was confused by the allegiances. I would have assumed that Tony would have been the anti-govt. libertarian and Steve would have been the pro-government advocate of oversight/accountability. But the film makes it clear that their various stances are shaped by their personal experiences; Tony's upon encountering the mother of a man killed, in Sokovia, as a consequence of his own actions, and also in view of his occasionally frosty but generally amicable relationship with the government/military, and Steve's with respect to his disillusionment with the US industrial-military-complex after the events of Civil War and the pursuit by the authorities of his best friend, Bucky.
Also, although I tend to lean on the pro-accountability/pro-government side of the overall debate, should superheroes come under the sole remit/authority of the US? That strikes me as another form of imperialism. One might argue that only the UN should have that authority, and even that is fraught with biases and inequities that favour some states over others.
Whilst I am very much pro-accountability, if and when these superheroes are operating outside the parameters of the US, as they so often do, surely it's fairer for them to be 'free agents' so to speak, rather than the US's attack dogs.
Then again, my OVERALL sympathies are probably with Helmut Zero, who, like me, regards the existence of super-powered beings as an existential threat, whatever side they work for. Period.
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